9  ^ 

5  ^ 


TEACHERS'  SALARIES 


AND 

SALARY  SCHEDULES 

IN  THE  UNITED  STATES,  1918-19 

Prepared  for  the  Commission  on  the  Emergenqr  in  Education 

of  the 
NATIONAL  EDUCATION  ASSOCIATION 


E.  S.  EVENDEN,  Ph.  D. 

Associate  in  Educational  Administration,  Teachers'  College, 
Columbia  University,  New  York  City 


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TEACHERS'  SALARIES 

AND 

SALARY  SCHEDULES 

IN  THE  UNITED  STATES,  1918-19 

Prepared  for  the  Commission  on  the  Emergency  in  Education 

of  the 

NATIONAL  EDUCATION  ASSOCIATION 


E.  S.  EVENDEN,  Ph.  D. 

Associate  in  Educational  Administration,  Teachers  College, 
Columbia  University,  New  York  City 


COMMISSION  SERIES 
NO.  6 


PRICE  ?i.5o 


WASHINGTON 

The  National  Education  Association 

1919 


87393 

UNIVERSITY  of  CALIFORNIA 

AT 

LOS  ANGELES 

LIBRARY 


>:& 


E,3^ 


CONTENTS 

I NTRODUCTION     1 

Chapter  I.     The  Salary  Situation  in  the  United  States  as  Shown  by  Re- 
ports from  423  City  Superintendents 7 

Part  I  of  Questionnaire  to  superintendents  giving  data  on 

distributions  of  salaries 11 

Part  II  of  Questionnaire  to  superintendents  giving  data  on 

salary  schedules,  current  standards,  and  cost  of  living..  38 

Chapter  II.     The  Salary  Situation  in  the  United  States  as  Shown  by  Re- 
ports  from  15,000  Individual  Teachers 66 

Part    I.     The  situation  as  shown  by  medians 70 

Part    II.     The    situation    as    shown    by   coefficients    of    cor- 
relation      77 

Chapter  III.     The   Salary    Situation   in   the   United    States   as    Shown   by 

Statements^  from  State  Superintendents 87 

Chapter  IV.     Teaching  and  the  Economic  Situation 89 

(a)  Teachers'  salaries  and  the  cost  of  living 99 

(b)  Teachers'    salaries    compared    with    those    of    other 
occupations    104 

Chapter  V.      Salary  Schedules  119 

Comparative  situation   120 

Typical  salary  schedules  in  opeartion 123 

Elements  to  be  considered  in  making  salary  schedules 131 

Suggested    salary    schedule 148 

Suggestions  for  administering  a  salary  schedule 148 

Teachers'  salaries  and  public  interest 149 

Appendix   I.     List  of  Cities  furnishing  data  for  Chapter  1 154 

"          II.     List  of  Cities  furnishing  data  for  Chapter  II 159 

"        III.     Method  of  computing  correlations  used  in  Chapter  II 164 

Bibliography    ^"' 


FOREWORD 

The  Commission  on  the  Emergency  in  Education  of  the  National 
Education  Association  has,  from  the  beginning  of  its  work,  recognized 
the  necessity  of  informing  the  pubHc  with  respect  to  teacher's  salaries. 
In  order  to  supplement  the  work  which  had  already  been  done  by 
the  Committee  on  Teachers'  Salaries,  Tenure,  and  Pensions,  the  Com- 
mission sent  out  during  February  of   1919  a  questionnaire  to  super- 
intendents of  schools  thruout  the  country.     The  data  thus  collected 
were  turned  over  to  Dr.  E.  S.  Evenden  of  Teachers  College,  Columbia 
'    University,  who,  under  the  direction  of  the  Chairman  of  the  Commis- 
^    sion  and  of  Professor  N.  L.  Engelhardt,  prepared  the  report  which  is 
^  submitted  herewith. 

The    National    Education    Association    and    the    teachers    of    the 

>4.  country  are  indebted  to  superintendents  who  cooperated  with  the  Com- 

^^  mission  in   furnishing  the  data,  to  a  group  of  graduate  students  in 

Teachers    College,    Columbia   University,    who    contributed    valuable 

assistance  in  the  tabulation  of  replies,  without  cost  to  the  association, 

but  most  of  all  to  Dr.  Evenden,  who  gave  a  large  part  of  his  time  over 

^  a  period  of  eight  months  in  the  preparation  of  this  report.     Super- 

i  intendents  of  schools,  teachers,  and  school  board  members  will  find 

^in  the  study  a  most  careful  analysis  of  the  salary  problem,  together 

N-/  with  proposals  for  salary  schedules.     It  is  only  as  the  recommendations 

made  are  carried  out  by  local  boards  of  education  that  we  may  hope 

to  provide  well  trained  teachers  for  all  American  boys  and  girls. 

George  D.  Straver, 
Chai'niiaii,  Cniiniiissioit  on  flic  Emergency  in  Education. 


INTRODUCTION 

Some  Facts  Showing  That  There  is  a  "National  Emergency 
in  Education" 

1.  The  average  number  of  years  (of  200  days)  attendance  at  public 
^chools  for  each  individual,  as  indicated  by  the  school  statistics  for 
1916/  was  only  5.96,  or  less  than  the  completion  of  the  sixth  grade  for 
an  average  education  for  the  citizens  of  the  greatest  democracy  in  the 
world. 

2.  The  total  high  school  enrolment  for  1916  was  only  8^  per  cent 
of  the  enrolment  of  the  elementary  schools.  Assuming  that  the 
schools  should  hold  students  at  least  thru  the  high  school,  and  that  the 
high  school  course  extends  over  4  years  and  the  elementary  over  8, 
we  might  expect  to  find  the  high  school  enrolment  nearly  50  per  cent 
of  the  enrolment  in  the  elementary  schools,  making  a  slight  allowance 
for  death  rate.  Instead,  we  find  8^4  per  cent,  or  only  one  out  of  every 
six  of  those  who  should  be  in  attendance.  The  "holding  power"  of  the 
school  is  a  mythical  quantity.  Its  "dropping  power,"  however,  is  not 
only  a  reality  but  so  effective  that  of  100  children  starting  the  first 
grade  together,  jo  are  dropt  before  they  finish  the  sixth  grade,  jo  of 
the  remaining  70  are  dropt  before  completing  the  eighth  grade ;  of  the 
ifo  graduating  from  the  eighth  grade,  50  more  are  dropt  before  gradua- 
tion from  high  school.  About  eight  more  are  dropt  before  college  and 
about  one  of  the  two  remaining  educational  pilgrims  completes  his 
college  course.^ 

3.  There  are  more  than  5.000,000  persons  in  the  United  States  over 
ten  years  of  age  (about  one  in  every  twenty)  who  can  neither  read  nor 
write. ^  If  we  consider  as  illiterate  all  who  are  not  able  to  read  a  news- 
paper and  write  a  simple  letter,  the  above  figures  would  be  increast 
four  times,  or  to  one  person  in  five.*  There  are  many  thousands  of 
children  in  the  United  States  attending  schools  in  which  not  a  word 
of  English  is  spoken  during  the  entire  day. 

4.  Of  the  3.208.446  men  examined  by  the  Draft  Boards  of  the 
United  States,  949.419  were  declared  physically  unfit  for  general 
military  service.'  Considering  that  these  were  men  in  the  prime  of 
life,  and  assuming  that  even  the  same  proportion  would  hold  for 
younger  and  older  men  and  for  women,  it  would  indicate  that  there 
are  30,000,000  persons  in  the  United  States  who  are  to  a  greater  or  less 
degree  physically  inefficient. 


1  Report  of  Commissioner  of  Education — Volume  II — 1917 — p.  24. 
-  Educational    Administration — Strayer    and    Thorndike — Sec.    2 — Macmillan    t'o. 
^  N.  E.  A.   Bulletin — April,   1919 — p.    13 

'  Based    on    findings    of   the    Psychological    Division    of    tlie    Surgeoii-Onrr.-.i's    Oflicr 
the   examination  of   1,552,256   men. 

'■Report   of   Provost   Marshal    (ieneral — 1918 — p.    153. 


N.1  TIONAL  ED UCA  TION  ASSOCIA  TION 


5.  About  4,000,000  children  are  taught  by  teachers  less  than  21 
years  of  age,  with  little  or  no  high  school  training,  with  no  professional 
preparation  for  their  work,  and  who  are,  in  a  great  majority  of  cases, 
products  of  the  same  schools  in  which  they  teach. ^ 

6.  The  normal  schools  and  teacher-training  institutions  of  the 
country  found  their  attendance  cut  from  5  to  46  per  cent,  during  the 
two  years  of  the  war,  thus  further  decreasing  the  inadequate  source 
of  supply.- 

7.  Thousands  of  children  were  urged  to  leave  school  and  enter 
some  shop  or  war  work  industry  in  order  that  they  might  more  directly 
"serve  their  country,"  and  attendance  laws  were  more  laxly  enforced 
in  order  to  make  this  possible. 

To  meet  the  above  conditions  educators  were  able  to  offer  pros- 
pective teaching  recruits  an  opportunity  to  serve,  to  do  work  which  is 
enervating,  with  many  outside  demands  and  long  irregular  hours,  at 
an  average  yearly  salary  of  $630.64'' — less  than  $55  a  month. 

Early  in  1917,  when  the  nation  was  giving  its  united  effort  to  win- 
ning the  war,  the  shortcomings  as  well  as  the  unrealized  possibilities 
of  the  schools  were  so  vividly  seen  by  men  and  women  prominent  in 
education  that  the  situation  was  referred  to  as  "The  Emergency  in 
Education."  When  the  matter  was  brought  before  the  National  Edu- 
cation Association  and  the  Department  of  Superintendence,  the  "Com- 
mission on  the  Emergency  in  Education  and  the  Program  for  Read- 
justment During  and  After  the  War"  was  formed.  This  Commission 
realized  the  imminence  of  the  danger  and  inaugurated  a  campaign, 
more  inclusive  than  any  ever  undertaken  in  this  country  along  educa- 
tional lines,  to  study  the  situation,  enlist  the  profession  and  inform  the 
people.  It  was  evident  from  the  discussions  of  the  first  meeting  that 
the  schools  of  the  covmtry  had  failed  to  meet  entirely  their  educational 
responsibilities  in  the  past ;  that  they  had  allowed,  and,  in  some  cases, 
caused  serious  inequalities  to  exist ;  and  that  they  were  not  making 
the  adjustments  necessary  to  meet  either  the  needs  of  war-time  or  the 
reconstruction  period  to  follow.  Five  problems  imprest  the  Commis- 
sion as  being  national  in  their  scope  and  in  need  of  immediate  action. 
These  were  (i)  the  removal  of  illiteracy,  (2)  the  Americanization  of 
foreigners,  (3)  the  equalization  of  educational  opportunities,  (4)  the 
promotion  of  physical  and  health  education  and  recreation  and  (5)  the 
preparation  of  teachers,  particularly  for  the  rural  schools.  Committees 
were  appointed  and  investigations  immediately  started. 

Early  in  these  investigations  it  was  found  that  sooner  or  later  nearly 


*  Based  on  estimates  given  in  N.  E.  A.  National  Program  for  Education — Commission 
Series  ,^ — p.   94. 

-  Brown,  J.  C,  "State  Normal  Schools  and  the  War" — School  and  .Society,  Volume  7 — 
p.   695. 

"  From  Estimates  of  Commissioner  of  Education — N.  E.  A.  Bulletin  for  April, 
1919 — p.    14. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  3 

all  of  the  problems  involved  the  ccoiwiiiic  aspects  of  teaching.  As  a 
consequence  one  of  the  three  big  National  Education  Association  prob- 
lems for  1919  was  a  campaign  for  better  salaries  thruout  the  United 
States.  The  first  phase  of  this  was  the  disclosure  of  the  alarming 
shortage  of  teachers  existing  in  all  sections  of  the  country.  Even  in 
the  larger  cities  where  salaries  were  higher  than  elsewhere  and  living 
conditions  more  congenial,  the  school  boards  could  not  begin  to  fill  the 
vacancies  caused  by  the  inroads  of  various  war  activities.  In  New 
York  City,  as  an  example,  the  shortage  was  so  great  that  in  February. 
1919,  in  278  of  the  schools  of  the  city,  19,901  registered  pupils  report- 
ing at  schools  received  absolutely  no  instruction.'  Superintendents  and 
principals  put  forth  every  effort  to  relieve  the  situation.  Classes  were 
doubled,  kindergarten  teachers  were  used  in  the  upper  grades,  but  thou- 
sands of  children  were  daily  turned  from  the  schools  to  the  streets. 
Every  effort  was  made  to  increase  the  supply,  particularly  of  substitute 
teachers,  but  there  were  few  applicants  for  examination,  and  fewer 
students  enrolled  in  the  city  training  schools  for  teachers.  Demobiliza- 
tion camps  were  canvast  for  teaching  recruits,  but  because  there  were 
relatively  few  with  the  necessary  preparation,  and  because  there  is  a 
rapidly  growing  feeling  that  teaching  is  not  a  man's  task,  these  can- 
vassings  brought  almost  no  returns. 

The  New  York  City  situation  was  practically  duplicated  in  every 
large  industrial  city  where  war  industries  caused  an  increase  in  urban 
concentration  of  population.  In  the  rural  districts  where  the  induce- 
ments to  enter  or  stay  in  teaching  work  are  vastly  fewer  than  in  the 
cities,  the  situation  was  proportionately  worse.  Whole  sections  of 
States  were  unable  to  open  the  rural  schools  in  the  poorly  paid  and 
less  favorably  situated  districts.  One  county  in  Pennsylvania  reported 
fifty- three  of  its  rural  schools  without  teachers.  According  to  an 
estimate  of  the  United  States  Commissioner  of  Education,  the  nation 
was  more  than  50.000  teachers  short  of  the  number  required  to  provide 
schooling  for  its  children — the  schooling"  which  should  be  guaranteed 
these  children  if  we  are  to  be  a  democracy  in  more  than  name  only. 

This  shortage,  which  was  more  than  tzvice  the  total  number  of 
graduates  of  all  the  public  and  private  normal  schools  in  the  entire 
country  during  the  preceding"  year,  existed  after  over  120,000  inexpe- 
rienst,  untrained,  immature  or  "erstwhile"  teachers  had  been  intro- 
duced into  the  schools  in  a  valiant,  tho  often  misguided  effort  to  open 
ihe  schools.  This  eft'ort  was  misguided  in  that  many  of  the  schools 
would  have  been  better  unopened  than  to  have  the  teachers  they  were 
compelled  to  take.  The  real  shortage,  then,  may  fairly  be  estimated  at 
nearly  170,000  teachers. 


'  The    Glohc    amd    l'onimeici:il    Advertiser — \\"ed..    Fcbniaiv     19.    igig — ArticU 
Metcalfe. 


XJTIOXAL   EOrCATIOX   .iSSOCIATION 


This  exodus  from  a  time-honored  and  socially  respected  form  of 
public  service  into  the  fields  of  stenography,  bookkeeping,  card-filing, 
indexing,  time-keeping,  salesmanship,  clerking  and  farm  work,  to  say 
nothing  of  the  fields  of  work  where  the  incentive  of  more  direct  war 
service  was  added,  such  as  nursing,  reconstruction  work,  decoding 
messages,  motor  driving,  etc.,  really  threatened  the  efficiency  if  not  the 
existence  of  our  system  of  public  education.  It  was  by  no  means 
entirely  caused,  as  some  have  said,  by  an  intense  desire  on  the  part  of 
patriotic  teachers  to  be  of  service  in  helping  to  win  the  war,  nor  by  a 
feeling  that  one  was  rendering  a  finer  service  by  taking  the  place  of  a 
man  in  the  local  grocery  store  than  by  teaching  forty  young  citizens  at 
school.  It  was  caused,  rather  by  the  ability  of  these  teachers  to  earn 
from  25  per  cent  to  100  per  cent  more  salary  in  these  other  occupations. 
The  various  governmental  departments  were  among  the  heaviest  bid- 
ders for  these  teachers.  Thousands  of  teachers  left  their  positions  and 
iheir  annual  salaries  of  from  $500  to  $600,  to  work  for  the  govern- 
ment for  $1,100  to  $1,500.  The  following  advertisement  from  the 
March,  1919,  number  of  a  State  educational  journal  shows  that  this  is 
still  a  factor  in  competition : 

TEACHERS— GET  U.  S.  GOVERNMENT  JOBS 
All  teachers,  both  men  and  women,  should  try  the  Govern- 
ment examinations  soon  to  be  held  thruout  the  entire  country. 
Reconstruction  v/ork  necessitates  thousands  of  appointments. 
The  positions  pay  from  $1,100  to  $1,500;  have  short  hours, 
annual  vacations,  and  are  permanent. 

Those  interested  should  write  immediately  to 

for   large   descriptive   book,    showing   the   positions 

open  and  giving  many  sample  examination  questions,  which  will 
be  sent  free  of  charge. 

Unfortimately  for  oiu-  schools  the  teachers  who  left  because  of 
these  inducements  have  not  returned  and  will  not  return  in  any  large 
numbers.  They  have  discovered  that  there  are  many  opportunities 
open  to  women  in  other  fields — fields  in  which  they  can  earn  a  much 
more  comfortable  living,  have  easier  hours,  less  fatiguing  work,  and 
more  freedom.  These  causes,  then — strictly  war-caused  in  their  first 
appearance — are  remaining  in  operation,  and  will  do  so  until  the  public 
school  service  can  be  made  more  attractive  financially  than  the  other 
lines  of  work.  This  cannot  be  done  until  we  have  a  universal  realiza- 
tion of  the  vital  part  played  by  the  schools  in  the  social  and  political 
life  of  any  country,  and  particularly  in  the  country  that  the  world  looks 
to  as  exemplifying  on  the  largest  scale  the  ideals  of  true  democracy. 

As  a  people,  we  have  been  slow  to  assign  to  the  school  a  leading 
part  in  our  drama  of  socialization.  When,  however,  it  became  neces- 
sar\-   to   secure   a   national   conviction    on   any   topic,    when   it   seemed 


'lEACHERS'   SALARIES   ASD   SALARY    SCHEDULES 


advisable  to  start  the  whole  country  on  a  policy  of  thrift,  or  when  some 
form  of  service  was  needed  by  Food  Administration,  Red  Cross  or 
other  organization,  there  was  an  immediate  appeal  to  the  school  as  the 
means  of  reaching  the  greatest  number  in  the  most  thoro  way.  Early 
in  our  participation  in  the  war  there  were  2jo  listed  agencies^  directly 
or  indirectly  using  the  schools  to  further  their  causes,  if  this  seems 
wise  and  can  be  done  in  the  stress  of  war,  it  could  and  should  be  done 
in  a  regulated  way  during  times  of  peace. 

Our  frantic  appeal  to  the  schools  to  help  in  this  emergency  was 
an  admission  that  they,  as  a  force  for  shaping  public  opinion,  had  been 
neglected  in  the  past.  Shall  we  now  again  neglect  this  force  which 
proved  so  helpful  in  securing  national  co-operation  and  in  shaping 
public  ideals?  Are  there  not  problems  before  us  as  a  nation,  which 
must  be  met  largely  by  the  aid  of  the  schools  ? 

There  has  been  no  armistice  declared,  and  we  hope  there  never 
will  be  a  treaty  signed  between  education  and  the  forces  which  strive 
against  mutual  understanding,  socialization  and  progress — in  a  word, 
against  civilization.  The  problems  of  reconstruction,  world  recon- 
struction, face  the  schools  and  their  product  of  the  next  few  years. 
Can  we  trust  the  execution  of  a  work  so  important  to  our  numerically 
depleted,  poorly  prepared,  and  financially  underpaid  teaching  force,  or 
to  the  recruits  who  may  enter  under  conditions  which  norw  exist  ?  For 
reasons  which  will  be  shown,  the  point  of  immediate  attack  for  the 
improvement  of  present  educational  conditions  is  the  financial  one. 

No  adjustment  of  the  salary  situation  can  be  either  satisfactor}^  or 
lasting  until  it  is  based  upon  sound  economic  principles.  Careful 
studies  of  the  whole  situation  in  its  economic,  sociological  and  educa- 
tional aspects  must  be  made,  and  salary  schedules  must  be  based  upon 
the  findings  of  such  studies.  Salary  adjustments  can  no  longer  be 
based  on  pity,  condescension,  or  public  charity  in  the  form  of  tempo- 
rary bonuses,  nor  can  they  be  made  by  "flat  increases"  either  in  dollars 
or  per  cents. 

The  National  Education  Association  has  conducted  such  a  study 
this  year,  in  the  hope  that  its  findings  may  be  profitable,  not  only  to  the 
teachers  concerned,  but  to  the  patrons  of  public  schools  in  America 
who,  because  of  their  belief  in  universal  education  and  their  faith  in 
democracy,  control  in  a  large  measure  the  efficiency  of  our  educational 
system  by  the  enlightened  way  in  which  they  financially  support  it. 

It  is  intended  that  this  report  shall  assist  in  the  solution  of  the 
salary  problem  for  teachers  in  three  ways :  ( i )  by  serving  to  stimu- 
late the  interest  of  the  teachers  and  school  patrons  of  the  country  in 
the  problem  of  better  pay  for  teachers;    (2)   by   furnishing  material 


1 N.   E.   A.   Pamphlet— "Thru   the   Schools   in   War   Time. 


NATIONAL   EDUCATION   ASSOCIATION 


and  suggestions  to  be  used  by  superintendents  and  teachers  in  their 
local  campaigns  for  better  salaries;  and  (3)  by  encouraging  school 
officials  or  teachers'  organizations  everywhere  to  make  careful  investi- 
gations of  their  local  conditions  and  problems,  in  order  that  teachers' 
salary  schedules  may  be  based  upon  business  principles  and  prevailing 
economic  conditions,  rather  than  upon  tradition  and  sentiment. 


PART  II— SALAR: 


I 

CX) 


o 

P 

2 

CO 


Directions:     In  answering  the  following  questions, 

(1)  Answer  set  "A"  for  elementary  school  teachers,  set  "  B  "  for  intermed 

(2)  Where  accurate  figures  are  not  available,  give  estimates. 

(3)  Make  all  financial  figures  and  estimates  cover  a  period  of  12  months. 


SET  "A" 

ELEMENTARY 

SCHOOLS 

including  grades  1.  2,  3, 
4,  5,  6,  and  where  no 
separate  intermediate 
school  is  maintained 
grades  7  and  8  also. 


SET  "B" 

INTERMEDIATE 

SCHOOLS 

(Jr.  H.  S.) 

including  grades  7  and 
8  or  7.  8.  and  9,  when 
maintained  as  separate 
divisions  of  the  school. 


SET  "C" 
HIGH  SCHOOL 

including  grades  10,  11 
12  where  intermediate 
schools  are  maintained, 
otherwise  grades  9,  10, 
II.  and  12. 


1.  How  many  months  are  these  schools  in  se; 

2.  Do  you  have  an  establisht  salary  schedule 

3.  What  is  the  minimum  for  elementary  teai 

4.  What  is  the  maximum  for  elementary  tea^ 

5.  What  is  the  annual  increase  for  element; 

6.  Upon  what  conditions  does  the  granting 

7.  What  does  good  board  and  a  comfortable 

8.  Is  teaching  experience  a  prerequisite  to  el 
How    much? 

9.  State  the  number  of  years  in  academic  an 
schools 


1.  How  many  months  are  these  schools  in  se 

2.  Do  you  have  an  establisht  salary  schedu] 

3.  What  is  the  minimum  for  intermediate  ■ 

4.  Wliat  is  the  maximum  for  intermedial 

5.  What  is  the  annual  increase  for  intermi 

6.  Upon  what  conditions  does  the  granting 

7.  What  does  good  board  and  a  comfortable 

8.  Is  teaching  experience  a  prerequisite  to  e 
How  much? 

9.  State  the  number  of  years  in  academic  an 
schools 


1.  How  many  months  are  these  schools  ii 

2.  Do  you  have  an  establisht  salary  schedu 

3.  What  is  the  minimum  for  high  school 

4.  What  is  the  maximum  f  jr  high  school 

5.  What  Is  the  annual  increase  for  high  scl 

6.  Upon  what  conditions  does  the  grantim 

7.  What  does  good  board  and  a  comfortable 

8.  Is  teaching  experience  a  prerequisite  to 
How  much? 

9.  State  the  number  of  years  in  academic  a 


Note:     If  you  have  a  printed  salary  schedule,  please  enclose  a  cop: 


PART  1— SALARIES  PAID  TEACHERS,  1918-19 


^ 


ELEMENTARY  SCHOOL 

INTERMEDIATE  SCHOOL 

N.    of 

"SsS'f'JiTl'J.''^''" 

"iit;  'i'ui'ni  tn^'StS"" " 

"IBBi-w:^^- 

Teacher* 
withdrawing 

l^^Z 

No  ofTwch 

w 

"££'!• 

JS'tL 

,",°yL! 

tS" 

.iSwS. 

thh  year? 

3r, 

"iiiir 

I  joo.  3<g 

3!0-  »S 

Am.  449 

liO-  49l> 

son-  S40 

!S0-  »• 

«<X>.M» 

650-  009 

700-  74» 

7SI).  799 

S0O.S49 

850-199 

900-  949 

9J0-999 

1000.1049 

70M.1009 

1100-1149 

llSO-1199 

1100-1149 

17S0.1299 

1300-1J49 

1J50-1J99 

1400.1449 

US0-U99 

lS0O-li9» 

170O-1J99 

1S00-H99 

1900-1999 

7000  7099 

2100-7199 

7700-7799 

1 

7300-7919 

7400-7499 

750O-79« 

'"""cl 

1 

b 


6 


PART  II— SALARIES  PAID  TEACHERS,  1918-1919 


1 

H      ma      m     (h         thn«  »tl  mIi  "n  Wo  » 

Do  you  bavean  «.«blUht  «.a,v  «h«li,.efor  .I.m^iUxv  «:too.  .«ch«,P 

ei-Sentarv 

■           f       1 

Wh  t.  IB  th        n  al  i               f        letncntJtv         heraf 

iDdudioE  erades  1.  3.  3, 

r.:rr:r::":"rir:o::tTr;r::v-^„,»cw.„u,c..^             . 

school     IB      mainUincd 

' 

H        mu  h? 

grades  7  an            w. 

1 

How  man    raonlht  are  Ihwo  »chool»  in  «e»ion? 

'- 

Do  vou  hav.  aa  e,Ul..iBh.  «l«v  «h«Iu.«  for  in.er»«iia.c  school  .«.c.«=. 

What  ii  the  maximum  for  intenoediale  Macherfl? 

SCHOOLS 

What  l9  the  annual  increaM  for  intermediate  teachers? 

U     n  what  condili  n»  d        the  n       Unit  of  this  in             d         d? 

including  eradw  7  and 

Wh..  d.„  ^  „^  .„d  >  ...t.™b,c  ™„  c,  „  ,„.„=di.„  ««  .«.b»  to  „u,c.„.a„l.y  (.2  ™n.h.,> 

■""•"■■•  °"""'°°'- 

' 

How  much? 

su...  ,M.  .«.b„  .,  ,^. .. .»...,.  »d  „,.»i„,a  p„™,.o.  >b.v,  .bo  «b  „*  .h„b ,. .  PC,,,,,*. ,.  .,«u.„  i.  „..  m™..^ 

, 

How  many  moMbs  aw  IheK  «iooli  in  Mwion? 

Doy™b.v.„„b,b,l.b.«,..,«b.du,„„,M.b«bo.l.«,.b.„,       .. 

HIGH  SCHOOL 

w";,:,ltZ7to™Lrbrr.ir.»':L^;:::::::::^  :: 

r,sri°Tro: 

Wh..  do.,  good  b».,d  „d  .  ..mforub,.  „.„ ..». .  h..b  Kh,.,  .„,b„  ta  y„,„ cmb.™,.,  (.2  .b.n.h.)- , 

II,  nnd   U. 

How  much? 

Slate  the  numher  of  yean  in  academic  and  professional  preparatfon  above  the  8th  grade  which  (s  a  prcrequUlt.  to  election  in  your  Ugh  ach 

S  PAID  TEACHERS,  1918-1919 


school  teachers  (Junior  H.  S.)  and  set  "C"  for  high  school  teachers. 


elementary  school  teachers?   

•s? 

s? 

teachers? 

his  increase  depend? 

)m  cost  an  elementary  school  teacher  in  your  community     (12  months)?, 
jn  in  your  elementary  schools? 


ofessional  preparation  above  the  8th  grade  which  is  a  prerequisite  to  election  in  your  elementarj' 


n? 

r  intermediate  school  teachers?  

lers? 

ichers? 

;e  teachers? 

his  increase  depend? 

m  cost  an  intermediate  school  teacher  in  your  community  (12  months)?, 
on  in  your  intermediate  schools? 


jfessional  preparation  above  the  8th  jjrade  which  is  a  prerequisite  to  election  in  your  intermediate 


sion? 

high  school  teachers? 

hers? 

hers? 

:eachers? 

;his  increase  depend? 

n  cost  a  high  school  teacher  in  your  community  (12  months)?, 
tion  in  your  high  schools? 


ofessional  preparation  above  the  8th  grade  which  is  a  prerequisite  to  election  in  your  high  school 


CHAPTER   I. 

The  Salary  Situation  in  the  United  States  as  Shown  by  Reports 

from  Three  Hundred  and  Ninety-two  City  and  County 

Superintendents. 

During  February,  1919,  the  following  letter  was  sent  out  from  the 
National  Education  Association  Headquarters  in  Washington  to 
selected  cities  and  counties  of  all  sizes  in  all  sections  of  the  country. 

January  31,  1919. 
To  THE  Superintendent  of  Schools  : 

The  National  Education  Association  wants  to  help  solve  the  problem  of 
teachers'  salaries,  hi  order  to  get  the  information  which  will  be  most  helpful 
to  superintendents  and  teachers  thruout  the  country,  it  is  necessary  to  have 
your  assistance.     I  am  enclosing  herewith  two  forms. 

On  the  first  of  these  blanks  you  are  askt  to  report  the  salaries  of  all 
teachers  now  in  the  employ  of  your  school  system  according  to  a  schedule  which 
appears  on  the  form,  and  to  answer  certain  other  questions  which  are  of 
importance  to  all  who  have  the  problem  of  the  increase  of  teachers'  salaries 
before  them  for  consideration.  Will  you  not  have  this  form  filled  out  imme- 
diately and  return  it  to  me.  The  data  included  on  this  form  we  can  put  into 
shape  very  rapidly. 

The  other  form  is  an  individual  teacher's  blank.  In  order  to  save  the  very 
great  expense  in  postage  I  am  asking  that  you  mimeograph  this  blank  exactly 
as  it  appears  on  the  sheet  enclosed,  and  that  you  have  it  filled  out  by  your 
teachers  and  sent  to  me  as  soon  as  possible.  If  you  find  it  impossible  to  take 
care  of  this  matter  for  me,  will  you  not  turn  it  over  to  your  local  teachers' 
association.  We  must  have  prompt  assistance  of  all  school  systems  receiving 
this  request  in  order  to  make  the  study  useful  for  those  who  hope  to  use  our 
data  in  the  development  of  new  salary  schedules  for  next  year.  Kindly  send 
reports  to  me  at  1400  Massachusetts  Avenue,  Washington,  D.  C. 

I  know  that  I  can  count  on  you  and  your  teachers  to  co-operate  with  us  in 
this  work.  The  efficiency  of  American  Schools  and  the  future  of  our  profes- 
sion are  involved  in  the  movement  to  secure  a  living  and  a  saving  wage  for 
teachers. 

Yours  faithfully, 

George  D.  Strayer. 

The  questionnaire  blank  to  be  filled  out  by  the  superintendents  is  given 
on  the  following  insert. 


NATIONAL  EDUCATION  ASSOCIATION 


The  blank  to  be  mimeographt  or  printed  and  filled  out  by  the  individual 
teachers. 

THE  SALARIES  OF  TEACHERS  IN  THE  UNITED   STATES 

To  THE  Teachers  of  the  United  States  : 

The  information  requested  below  is  desired  by  the  National  Education 
Association  in  order  to  aid  in  securing  adequate  salaries  for  teachers  thruout 
the  country.  You  are  vitally  interested  in  the  results.  All  information  will  be 
used  in  an  entirely  impersonal  way — be  frank  and  as  accurate  as  possible.  Fill 
out  the  blank  today.  Very  cordially  yours, 

George  D.  Strayer, 

President  of  the  N.  E.  A. 

1.  State City  School   Date   

2.  Name   Age Sex Married?     Yes No 

3.  How  many  persons  are  entirely  dependent  upon  you  for  support? 

How  many  in  part  dependent  upon  you  for  support?... 

4.  Are  you  teaching  in   kindergarten  ? elementary  ? inter- 
mediate ? or  high  school  ? What  grade  or  subj  ect  ? 

Are  you  a  principal? What  part  of  your  time  do  you  teach? 

Are  you  a  supervisor  ? What  do  you  supervise  ? 

5.  Number  of  years  experience  in  rural  schools? kindergarten? 

graded  schools  ? intermediate  schools   (Junior  or  H.  S.)  ? 

high  schools  ? normal  or  college  ? In  present  system  ? 

Total  number  of  years  teaching  experience? Give  accurate  amounts 

or  careful  estimates  for  the  items  below.     Each  amount  or  estimate  should 
include  a  period  of  twelve  months. 

6.  Annual  salary  received  from  the  school.  .1917-18 1918-19 

7.  Number  of  months  taught  during 1917-18 1918-19 

8.  Bonus,  if  any,  received  from  the  school..  1917-18 1918-19 

9.  Additional  income,  not  included  above, 
for    tutoring,    evening    school,     summer 

work,  writing,  lecturing,  etc 1917-18 1918-19 

10.  Annual  amount  spent  for  personal  living 
expenses:  room  rent,  board,  clothes,  car 

fare,  medical  attention,  etc 1917-18 1918-19 

11.  Annual  amount  spent  for  your  recre- 
ation, books,  magazines,  travel,  profes- 
sional advancement,   etc 1917-18 1918-19 

12.  How  many  years  did  you  attend  high  school? Did  you  graduate?. . . 

How  many  years  did  you  attend  H.  S.  training  class  ? . . . .  Did  you  graduate  ? .  . . 

How  many  years  did  you  attend  normal  school? Did  you  graduate?. . . 

How  many  years  did  you  attend  college  or  Univ.  ? Did  you  graduate  ? .  . . 

How  many  years  did  you  attend  special  schools  ? Did  you  graduate  ? . . . 

In  the  above  figures,  no  year  of  training  or  study  should  be  listed  in  more 
than  one  place. 

Please  write  distinctly.    Make  explanatory  notes  on  back. 

The  administrative  problems  of  cities  vary  with  the  size  and  loca- 
tion of  the  city.  Consequently,  it  seemed  advisable  to  separate  the 
cities  into  size  groups  and  geographical  groups  in  order  to  make  the 


TEACHERS'  SALARIES   AM)   SALARV  SCHEDULES  9 

collected  data  on  salaries  more  immediately  comparabte  with  the  situ- 
ation in  any  particular  place. 

The  aim  in  determining  the  limits  of  the  size  groups  was  to  secure 
sizes  in  which  the  administrative  problems  and  the  administrative 
machinery  were  more  or  less  distinctly  characteristic  of  cities  of  that 
size.    The  size  groups  as  here  explained  will  be  used  thruout  the  study. 

Size       I.  Cities  having  a  population  of  100,000  or  more. 

Size     II.  Cities  having  a  population  of  50,000,  but  less  than  100,000. 

Size  III.  Cities  having  a  population  of  25,000,  but  less  than  50,000. 

Size  IV.  Cities  having  a  population  of  10,000,  but  less  than  25,000. 

Size     V.  Cities  having  a  population  of  5,CK30,  but  less  than  10,000. 

Size  VI.  Cities  having  a  population  of  5,000  or  less. 

In  determining  the  size  group  for  any  city  the  population  was  taken, 
where  possible,  from  "Estimates  of  Population  for  the  United  States 
for  191 6,"  Bulletin  133  of  the  Bureau  of  Census.  For  cities  not 
included  in  this  list  the  population  as  given  in  the  13th  Census  for 
1910  was  used. 

The  aim  in  determining  which  states  to  include  in  the  geographical 
groups  was  to  secure  groups  in  which  the  economic,  natural,  industrial 
and  educational  conditions  were  more  or  less  distinctly  characteristic 
of  the  states  within  that  group.  The  geographical  groups  as  here 
explained  will  be  used  thruout  the  study. 

Group  A.     Eastern    (Industrial),   including  Connecticut,   Maine,   Massachusetts. 

New   Hampshire,    New   Jersey,    New   York,   Pennsylvania,   Rhode 

Island  and  Vermont. 
Cjroup  B.     Southern    States,    including   Alabama,    Arkansas.    Delaware.    District 

of    Columbia,    Florida,    Georgia,    Kentucky,    Louisiana,    Maryland, 

Mississippi,    North    Carolina,    South    Carolina,    Tennessee.    Texas. 

Virginia  and  West  Virginia. 
Group  C.     Great  Lakes   (Manufacturing),  including   Illinois.   Indiana,  Michigan. 

Ohio,  Wisconsin. 
Group  I).     Great    Plains    (Agricultural),    including    Iowa,    Kansas,    Minnesota, 

Missouri.  Nebraska.  North  Dakota,  Oklahoma  and  South   Dakota. 
Group  E.     Western,   including  Arizona,   California,   Colorado.   Idaho,   Montana. 

Nevada.  New  Mexico.  Oregon,  Utah.  Washington   and  Wyoming. 

Other  groupings  are  possible  in  which  the  states  wotild  be  a  little 
more  homogeneotis  from  the  standpoint  of  educational  problems,  but 
tiot  without  increasing  the  number  of  groups  which  would  complicate 
the  tabulation  of  data- beyond  the  advantage  gained. 

Three  hundred  and  ninety-two  replies  were  received  from  city  and 
county  superintendents  in  time  to  be  incorporated  in  all  the  tables. 
Thirty-one  came  in  too  late  to  be  used,  save  for  special  comparison  in 
the  distribution  of  salaries,  and  in  five  or  six  cases  the  blank  was  not 
filled  out  completely,  and  it  was  impossible  to  place  it  in  its  proper 
group. 


10  NATIONAL  EDUCATION  ASSOCIATION 

The  lists  given  in  appendixes  I  and  II  give  the  cities  induded  in 
the  study,  by  groups.  Any  city  can  be  located  in  the  list  by  determining 
its  size  and  geographical  group.  For  example,  Holyoke,  Massachusetts, 
belongs  in  geographical  group  A  and  size  group  II.  Similarly,  St. 
Louis,  Missouri,  would  be  DI. 

It  is  readily  seen  from  an  examination  of  this  list  of  cities  that,  to 
a  very  markt  degree,  it  is  representative  of  American  cities.  Every 
city  size  of  every  geographical  group  is  represented,  and  this  repre- 
sentation is  made  by  typical  cities.  The  manufacturing  center,  the 
commercial  center,  the  city  with  a  large  immigrant  population,  the 
mining  center,  the  distributing  center  for  agricultural  districts  and  the 
health  resort  can  all  be  found  in  the  different  size  groups.  The  repre- 
sentative nature  of  the  cities  makes  the  results  of  the  study  even  more 
significant  and  reliable.  Only  ten  county  superintendents  had  the 
blanks  filled  out  in  any  number,  so  that  the  results  of  the  study  are 
more  representative  of  city  conditions  than  rural.^  The  effect  of  an 
introduction  of  more  rural  teachers  into  the  study  would  materially 
decrease  the  median  salaries  found.  This  generalization  is  substan- 
tiated by  the  returns  which  were  tabulated.  It  is  also  true  that  salaries 
are  better  in  the  rural  connnunities  which  have  a  stronger  county 
organization  as  compared  with  those  in  which  the  single  school  is  the 
principal  imit. 

In  the  following  tables  the  returns  will  be  given  according  to  size 
groups,  and  where  desirable,  by  geographical  groups  also.  In  most  of 
the  questions  studied  the  difference  caused  by  the  size  of  the  city  is 
greater,  more  significant  and  more  usable  than  the  difference  caused 
by  location,  consequently  where  only  one  grouping  is  used  it  will  be 
that  of  size. 

New  York  City,  Chicago  and  Philadelphia,  cities  whose  populations 
are  over  a  million,  are  not  included  in  these  tables  because  it  was  felt 
that,  in  many  ways,  their  educational  situation  is  unique,  and  also  that 
because  of  their  size  and  the  number  of  teachers  employed,  they  would 
unduly  influence  the  returns  from  other  cities. 

The  following  terms  will  be  used  frequently  and  will  need  but  a 
word  of  explanation. 

A  Distrihiition  ("distribution  table")  is  an  arrangement  of  a  group 
of  measures  in  ascending  (or  descending)  order,  and  indicates  the 
number  of  times  each  measure  is  found  in  the  cases  under  considera- 
tion. — 

The  First  Quartile  (Q.)  or  25  percentile  is  that  point  on  the  scale 
below  which  fall  exactly  one-fourth  of  the  distributed  cases,  and  above 
which  three-fourths  of  the  distributed  cases  fall. 


■■The    returns   will    be   referrcil    lo    in    I  lu-    study   ;is    ''\]<)~    cities"    reporting   even    tho   this 
uniiber   inrhiHed   tlie   ten    connties, 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  11 

The  Median  (mid-point)  is  that  point  on  the  scale  which  divides 
the  distribution  exactly  in  half,  having  one  half  of  the  cases  fall  below 
and  the  other  half  fall  above. 

The  Third  Qiiartile  (Q:j)  or  75  percentile  is  that  point  on  the  scale 
below  which  fall  exactly  three- fourths  of  the  distributed  cases,  and 
above  which  one-fourth  of  the  distributed  cases  fall. 

The  Qiiartile  Deviation  (Q)  is  one-half  the  distance  on  the  scale 
between  the  first  quartile  and  the  third  quartile.  It  is  used  as  a  con- 
venient measure  of  variation,  since  from  it,  it  is  easy  to  determine  the 
distance  upon  the  scale  which  will  include  the  middle  fifty  per  cent  of 
the  cases,  and  thereby  determine  the  closeness  of  the  grouping  of  the 
individual  cases  about  the  median. 

For  purposes  of  computing  medians  and  quartiles  in  this  study 
the  plan  w^as  adopted  of  making  the  steps  take  their  names  from  the 
beginning  of  the  steps.  Thus,  salary  group  $500  extends  from  $500 
to  $549.99.  The  first  steps  of  all  distributions  are  supposed  to  begin 
at  zero  and  extend  to  the  beginning  of  the  next  step.  By  using  this 
arrangement  for  the  steps  it  will  tend  to  make  all  the  medians  and 
quartiles  a  little  higher  than  they  are  in  reality,  because  of  the  prevail- 
ing custom  among  school  men  of  granting  salaries,  increases,  etc.,  in 
round  numbers.  Thus,  in  the  $500  salary  group  there  will  be  more 
teachers  receiving  an  even  $500  than  will  be  distributed  between  $500 
and  $549.  It  was  considered  that  this  "padding  of  salaries"  was  less 
harmful  than  the  lack  of  uniformity,  or  than  the  additional  work  and 
chances  of  error  involved  in  the  other  method.  In  all  statements  and 
computations  involving  salaries  and  other  items  the  results  have  been 
computed  to  the  nearest  dollar  or  to  the  nearest  unit.  A  few  exceptions 
to  this  are  necessary  where  several  medians  are  so  close  that  the  frac- 
tions are  necessary  in  order  to  make  comparisons. 

Part  I  of  Questionnaire  to  Superintendents 

In  Tables  I-I\'  inclusive  the  salaries  of  teachers  of  392^  cities  are 
distributed  according  to  city  sizes.  Separate  distributions  are  made  for 
elementary  teachers,  for  intermediate  teachers,  for  high  school  teachers 
and  for  all  teachers  combined.  Elementary  teachers'  salaries,  as  shown 
in  Table  I,  range  from  $200  to  $2,200  for  the  entire  group.  The 
greatest  range  in  any  one  group  is  in  Size  II,  with  a  difference  of 
$1,900  between  the  lowest  and  the  highest.^  The  greatest  difference 
between  the  median  salaries  of  any  two  groups  is  $259.     (I  and  V.) 


1  List  of  these   cities   given    in   Appendix    I. 

2  There  is  a  slight  chance  that  a  few  of  the  higher  salaries  may  be  those  of  principals 
or  special  supervisors,  even  tho  the  blank  stated  that  these  were  not  to  be  included.  Ex- 
cept in  a  few  cases,  where  the  salaries  were  verified,  thcr  were  used  as  they  were  sent  in 
by    the    superintendent. 


12 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE   I 

ELEMENTARY   TEACHERS'   SALARIES   FOR    1918  19   IN   THE   392   CITIES   REPORTING 
(Distributed  according  to  size  of  the  cities  and  salaries  received.)* 


Num 

'  er  of  teachers  in  each  s'ze  group 

Salary 

Groups 

I 

11 

I.I 

IV 

V 

VI 

Totals 

«  200-  249 

9 

1 

10 

iSO-  299 

300-  349 

15 

3 

21 

15 

112 

10 

176 

350-  5<}9 

11 

32 

17 

19 

25 

104 

400'  449 

19 

3i 

59 

9 

42 

28 

190 

450-  499 

17 

53 

106 

76 

125 

70 

447 

SOO-  549 

80 

49 

129 

181 

177 

127 

743 

550-  599 

251 

100 

157 

336 

221 

252 

1317 

600-  649 

353 

187 

263 

511 

278 

343 

1935 

650-  699 

276 

227 

347 

579 

270 

342 

2041 

700-  749 

1001 

229 

407 

489 

260 

386 

2772 

750-  799 

1566 

297 

461 

438 

173 

215 

3150 

800-  849 

1369 

320 

631 

500 

146 

149 

3115 

850-  899 

720 

358 

618 

339 

103 

87 

222S 

"^00-  949 

1766 

362 

567 

355 

125 

85 

3260 

•950-  999 

697 

432 

446 

240 

84 

43 

1942 

'1000-1049 

725 

428 

363 

308 

49 

49 

1922 

1050-1099 

393 

187 

229 

128 

20 

30 

987 

1100-1149 

1153 

127 

154 

131 

5 

25 

1595 

1150-1199 

781 

36 

211 

28 

7 

11 

1074 

1200-1249 

560 

93 

317 

71 

8 

7 

1056 

1250-1299 

909 

5 

10 

12 

6 

1 

943 

1300-1349 

96 

6 

42 

50 

6 

2 

202 

1350-1399 

615 

1 

13 

2 

1 

2 

634 

1400-1449 

480 

5 

28 

9 

2 

1 

525 

1450-1499 

5 

1 

2 

8 

1500-1599 

>0 

7 

4 

9 

1 

41 

1600-1699 

40 

2 

2 

5 

1 

50 

1700-1799 

10 

1 

5 

16 

1800-1899 

9 

2 

1 

12 

1900-1999 

.3 

1 

4 

2000-2099 

1 

1 

2100-2199 

1 

1 

2200-2299 

1 

1 

2300-2399 

2400-2499 

•  2500-2999 

3000-and 

over. 

Totals 

13946 

3554 

5618 

4846 

2242 

2293 

32499 

**Q1 

S  796 

S  751 

S  736 

S  656 

S  569 

S  609 

$  721 

Median 

936 

889 

866 

774 

677 

693 

856 

Q^ 

1152 

1002 

997 

920 

801 

782 

1025 

Q 

178 

126 

131 

132 

111 

87 

152 

*  For  explanation  of  size  groups  see  page  9. 
**For  explanation  of  terms  used  see  page  10  and  11. 


It  is  noticeable  that  the  median  salary  decreases  with  each  lower 
size  group,  except  between  sizes  V  and  VI,  and  that  the  quartile  devia- 
tion is  largest  in  the  cities  of  Size  I,  indicating  a  wider  range  of, 
salaries,  and  smallest  in  cities  of  Size  VI,  indicating  a  closer  grouping 
around  the  median  salary.  In  Group  I  seventy-five  per  cent  of  the 
teachers  get  more  than  $796,  while  in  Group  VI  seventy-five  per  cent 
of  the  teachers  receive  less  than  $782.  With  the  median  salary  in 
cities  of  Size  VI,  $243  less  than  in  cities  of  Size  I,  and  the  quartile 
deviation  also  smaller,  it  is  evident  that  the  salary  situation  for  ele- 
mentary teachers  is  much  worse  in  cities  below  5,000  inhabitants  than 


TEACHERS'  SALARIES  AND  SALAR\'  SCHEDULES 


lo 


TABLE  II 

INTERMEDIATE 

TEACHIiRS'  SALARIES  FOR  191H  19  IN  THE  392  CITIES  REPORTING 

(Distributed 

according  to 

size  of  the  cities  and  salaries  received.)* 

Number  of  Teachers  in  each  size  group 

Salary 

Groups 

I 

II 

Ill 

IV 

V 

VI 

Totals 

$  200-  249 

250-  299 

300-  349 

1 

1 

350-  399 

400-  449 

2 

1 

1 

1 

5 

450-  499 

1 

1 

2 

2 

6 

500-  549 

7 

17 

4 

28 

550-  599 

1 

4 

4 

34 

44 

87 

600-  649 

4 

1 

3 

12 

29 

21 

70 

650-  699 

7 

8 

28 

36 

38 

117 

700-  749 

16 

9 

27 

43 

59 

154 

750-  799 

4 

9 

13 

24 

59 

39 

148 

800-  849 

5 

9 

20 

43 

36 

27 

140 

850-  899 

17 

8 

39 

30 

25 

27 

146 

900-  949 

4 

22 

61 

38 

49 

15 

189 

950-  999 

49 

5 

35 

30 

13 

8 

140 

1000-1049 

13 

41 

53 

32 

15 

6 

160 

1050-1099 

14 

8 

42 

40 

6 

6 

116 

1100-1149 

56 

14 

42 

30 

7 

6 

155 

1150-1199 

22 

23 

24 

23 

5 

4 

101 

1200-1249 

37 

3 

53 

22 

1 

116 

1250-1299 

25 

19 

1 

2 

47 

1300-1349 

55 

27 

9 

1 

92 

1350-1399 

33 

3 

36 

1400-1449 

20 

17 

2 

2 

41 

1450-1499 

24 

1 

3 

28 

1500-1599 

15 

7 

22 

1600-1699 

7 

3 

4 

1 

IS 

1700-1799 

4 

2 

2 

8 

1800-1899 

4 

1 

1 

6 

1900-1999 

5 

3 

8 

2000-2099 

2 

2 

2100-2199 

1 

1 

2200-2299 

2300-2399 

1 

I 

2400-2499 

2500-2999 

3000-and 

over. 

Totals 

421 

169 

487 

420 

380 

309 

2186 

**Q1 

$1072 

S  840 

S  919 

$  801 

$  669 

$  657 

$  777 

Median 

1226 

1007 

1047 

943 

775 

738 

951 

Q3 

1362 

1092 

1210 

1098 

905 

844 

1143 

Q 

145 

126 

146 

149 

118 

94 

183 

*For  explanation  of  size  groups  see  page  g. 
**For  explanation  of  terms  used  see  pages  lo  and  ii. 

in  those  over  100,000.  The  median  salary  for  elementary  teachers  in 
all  groups  is  only  $856.  This  means  that  16,249  teachers  of  the  32,499 
reported  received  less  than  $856  during  the  year  1918-19.  This  figure 
would  have  to  be  reduced  materially  to  represent  the  median  salaries 
of  all  elementary  teachers  because  of  the  small  representation  of  rural 
and  village  teachers.  Since  86  per  cent  of  the  teachers  represented  in 
Table  I  are  from  cities  above  10,000,  a  median  of  $856  is  more  directly 
comparable  with  the  results  of  the  study  made  by  the  National  Educa- 
tion Association  for  1917-18^  in  which  the  median  salary  for  ele- 
mentary teachers  in  320  cities  over   10,000  population  was  found  to 


'■Teachers    Salaries   and    Cost   of   Living    1918 — page    58. 


14 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  III 

HIGH  SCHOOL  TEACHERS'  SALARIES  FOR  1918-19  IN  THE  392  CITIES  REPORTING 

(Distributed  according  to  size  of  the  cities  and  salaries  received.)* 

Number  o  teachers  in  each  size  group 

Salary 

Groups 

I 

II 

III 

IV 

V 

VI 

Totals 

$  200-  249 

250-  299 

300-  349 

2 

1 

1 

4 

350-  399 

1 

1 

2 

400-  449 

3 

1 

4 

450-  499 

1 

4 

2 

7 

500-  549 

2 

1 

6 

4 

2 

I 

16 

550-  599 

2 

2 

2 

4 

10 

600-  649 

4 

5 

8 

11 

13 

41 

650-  699 

5 

3 

11 

18 

12 

27 

76 

700-  749 

7 

12 

16 

3i 

31 

62 

161 

750-  799 

27 

15 

21 

64 

40 

65 

232 

800-  849 

17 

15 

45 

92 

102 

136 

407 

850-  899 

32 

16 

45 

63 

90 

96 

342 

900-  949 

63 

35 

73 

148 

138 

173 

630 

950-  999 

21 

23 

112 

106 

58 

63 

383 

1000-1049 

423 

49 

99 

172 

86 

81 

910 

1050-1099 

45 

42 

104 

68 

40 

27 

326 

1100-1149 

79 

56 

109 

72 

29 

34 

379 

1150-1199 

103 

47 

32 

59 

13 

12 

266 

1200-1249 

201 

98 

158 

94 

32 

44 

627 

1250-1299 

67 

78 

51 

43 

17 

13 

269 

1300-1349 

121 

47 

84 

88 

12 

19 

371 

1350-1399 

92 

67 

50 

40 

22 

19 

290 

1400-1449 

140 

94 

86 

91 

15 

10 

436 

1450-1499 

54 

14 

74 

21 

5 

3 

171 

1500-1599 

306 

61 

109 

105 

39 

23 

643 

1600-1699 

237 

77 

191 

58 

14 

8 

585 

1700-1799 

215 

27 

34 

32 

4 

1 

313 

1800  1899 

355 

25 

55 

27 

4 

3 

469 

1900-1999 

250 

13 

21 

6 

2 

292 

2000-2099 

90 

9 

11 

20 

1 

2 

133 

2100  2199 

61 

13 

4 

4 

1 

83 

2200-2299 

23 

5 

9 

7 

44 

2300-2399 

14 

4 

18 

2400-2499 

35 

1 

1 

37 

2500-2999 

10 

1 

11 

3000-and 

2 

2 

over 

Totals 

3094 

944 

1639 

1547 

823 

943 

8990 

**Q1 

$1171 

$1121 

$1034 

$  935 

$  853 

$  822 

$  991 

Median 

1513 

1288 

1242 

1097 

944 

918 

1224 

Q3 

1815 

1482 

1537 

1383      1107   1 

1039 

1559 

Q 

322 

181 

252 

224       127   1 

109 

284 

*For  explanation  of  size  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages  10  and  11. 

be  $816.  When  this  comparison  is  made  and  allowance  made  for  the 
effect  of  Groups  V  and  VI,  it  appears  that  the  median  salary  for  ele- 
mentary teachers  is  from  $40  to  $50  more  in  1918-19  than  the  previous 
year.  This  shows  that  there  has  been  a  rather  general  tho  small  in- 
crease during  the  year  in  teachers'  salaries. 

Table  II  shows  the  situation  for  intermediate  teachers  in  the  cities 
reporting  intermediate  schools.  The  range  of  salary  for  the  entire 
group  is  $2,000,  the  same  as  for  elementary  teachers,  but  the  range 
between  median  salaries  of  groups  is  $498  (I  and  VI)  which  is  nearly 
double  the  difference  found  in  elementary  schools.  The  median  salaries 
decrease  with  every  decrease  in  city  size,  and  are  also  in  every  case 
higher  than  for  elementary  teachers.     The  quartile  deviation  is  more 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


15 


TABLE  IV 

ELEMENTARY.    INTERMEDL\TE    AND    HIGH    SCHOOL    TEACHERS'    SALARIES    FOR 
1918-19  IN  THE  392  CITIES  REPORTING 

(Distributed  according  to  size  of  the  cities  and  salaries  received)* 


Number  of  teachers  in  each  size  group. 

Salary 

Group; 

I 

11 

III 

IV 

V 

VI 

Totals 

S200-  249 

9 

1 

10 

250-  299 

300-  349 

17 

3 

22 

15 

113 

11 

181 

350-  399 

11 

i^ 

17 

20 

25 

106 

400-  449 

24 

34 

60 

9 

42 

30 

199 

450-  499 

17 

55 

111 

78 

125 

74 

460 

500-  549 

82 

50 

135 

192 

196 

132 

787 

550-  599 

252 

100 

163 

342 

257 

300 

1414 

600-  649 

361 

188 

271 

531 

318 

377 

2046 

650-  699 

281 

237 

366 

625 

318 

407 

2234 

700-  749 

1008 

257 

432 

549 

334 

507 

3087 

750-  799 

1597 

321 

495 

526 

272 

319 

3530 

800-  849 

1391 

344 

696 

635 

284 

312 

3662 

850-  899 

769 

382 

702 

432 

218 

210 

2713 

900-  949 

1833 

419 

701 

541 

312 

273 

4079 

950-  999 

767 

460 

593 

376 

155 

114 

2465 

1000-1049 

1161 

518 

515 

512 

150 

136 

2992 

1050-1099 

452 

237 

375 

236 

66 

63 

1429 

1100-1149 

1288 

197 

305 

233 

41 

65 

2129 

1150-1199 

906 

106 

267 

110 

25 

27 

1441 

1200-1249 

798 

194 

528 

187 

41 

51 

1799 

1250-1299 

1001 

83 

80 

56 

23 

16 

1259 

1300-1349 

272 

53 

153 

147 

19 

22 

665 

1350-1399 

740 

68 

63 

45 

23 

21 

960 

1400-1449 

640 

99 

131 

102 

19 

11 

1002 

1450-1499 

83 

15 

77 

22 

5 

5 

207 

1500-1599 

341 

68 

120 

114 

40 

23 

706 

1600-1699 

284 

79 

196 

67 

16 

8 

650 

1700-1799 

229 

27 

37 

39 

4 

1 

337 

1800-1899 

368 

27 

56 

29 

4 

3 

487 

1900-1999 

255 

16 

21 

9 

2 

1 

304 

2000-2099 

90 

10 

11 

22 

1 

2 

136 

2100-2199 

62 

13 

4 

5 

1 

85 

2200-2299 

23 

6 

9 

7 

45 

2300-2399 

14 

4 

1 

19 

2400-2499 

35 

1 

1 

37 

2500-2999 

10 

1 

11 

3000-and 

2 

2 

over 

Totals 

17,461 

4667 

7744 

6812 

3446 

3545 

43675 

**Q1 

S  825 

$  788 

$  785 

S  692 

$  617 

$  642 

S  756 

Median 

1013 

943 

928 

841 

750 

741 

917 

Q3 

1254 

1078 

1122 

1024 

864 

889 

1132 

Q 

215 

145 

169 

166 

124 

124 

188 

*For  explanation  of  size  grroups  see  page  g. 

*¥oT  explanation  of  terms  used  see  pages  lo  and  ii. 


uniform  and  in  most  groups  slightly  less  than  for  elementary  teachers. 
The  intermediate  school  as  a  separate  division  of  the  school  system  is 
a  development  of  recent  years,  and,  in  a  majority  of  cases,  was  started 
with  the  best  teachers  in  the  system,  which  would  partially  account  for 
the  higher  salaries.  Another  reason  for  this  is  the  departmental  organi- 
zation of  intermediate  schools  and  the  additional  preparation  demanded 
in  many  cases.  In  Groups  I,  II,  III  and  IV  the  median  salary  for 
intermediate  teachers  is  higher  than  the  third  quartile  of  elementary 
leachers  in  those  groups. 

Table  III  shows  the  distribution  of  salaries  of  high  school  teachers 


16 


NATIOAAL  EDLCATIUN   ASSOCIATION 


CHART    I 

CHART  SHOWING   MEDIAN   SALARIES   FOR  CITIES   IN   THE   DIFFERENT   SIZE 

GROUPS    FOR    ELEMENTARY    TEACHERS,    INTERMEDIATE    TEACHERS, 

HIGH  SCHOOL  TEACHERS,  AND  FOR  THE  TOTAL  OF  THE  THREE 


Elementary 
Intermediate 
High   School 
Total  for  all  teachers 


=  M^N 


\E 


\E 


\ 


\= 


be 


for  the  392  cities  reporting.  The  range  of  high  school  salaries  is  much 
more  than  for  either  elementary  or  intermediate,  being  at  least  $2,700. 
The  greatest  di^erence  between  median  salaries  of  any  two  groups  is 
$595-  (I  and  VI.)  This  is  nearly  $100  more  than  the  same  difference 
for  internrediate  teachers,  but  is  no  more  in  proportion  to  the  size  of 
the  median  salaries. 


TEACH liKS'  SALARIES  AAA)  SALARV  SCHEDULES  17 

The  effect  of  the  size  of  the  city  upon  the  salary  paid  is  very  notice- 
able, as  in  the  intermediate  salaries.  The  biggest  difference  between 
any  two  consecutive  groups  is  between  I  and  II,  where  the  median 
salaries  differ  by  $225. 

The  quartile  deviation  for  high  school  teachers  is  larger  and  more 
varied  than  for  elementary  or  intermediate  teachers.  A  quartile  devia- 
tion of  $322  for  cities  in  Group  I  shows  a  large  variation  in  the  salaries 
paid  high  school  teachers  in  the  larger  cities,  since  the  middle  50  per 
cent  of  the  teachers  spread  over  a  range  of  $644.  This  is  three  time 
as  large  as  the  quartile  deviation  for  cities  in  Group  VI. 

The  comparison  of  the  median  salaries  received  by  high  school 
teachers  with  those  of  intermediate  and  elementary  teachers  brings 
very  forcibly  to  light  several  conditions  which  school  men  have  known 
to  exist,  and  yet  have  done  nothing  to  adjust. 

High  school  salaries  are  as  much  higher  than  intermediate  as  the 
intermediate  are  higher  than  the  elementary.  Thus,  from  the  stand- 
point of  financial  reward  there  is  an  advantage  in  changing  from  ele- 
mentary to  intermediate  and  from  intermediate  to  high  school.  There 
is  more  preparation  demanded  in  each  of  the  two  upper  divisions  also, 
but  the  decided  increase  in  salary  tends  to  take  from  the  elementary 
field,  particularly,  the  strongest  and  most  ambitious  teachers.  The 
difference  between  the  high  school  and  the  elementary  salaries  is  par- 
ticularly noticeable.  In  every  size  group  of  cities,  the  first  quartile 
of  the  high  school  salaries  is  higher  than  the  third  quartile  of  the 
elementary  salaries.  In  other  words,  three-quarters  of  the  high  school 
teachers  receive  more  salary  than  the  best  paid  quarter  of  all  ele- 
mentary teachers.  Such  a  difference  is  so  large  that  it  becomes  a  social 
distinction  and  in  several  ways  mitigates  against  the  proper  coordina- 
tion of  the  different  divisions  of  the  schools.  This  difference  in  salary 
also  makes  it  possible  to  demand  more  preparation  on  the  part  of  the 
high  school  teachers,  but  does  not  add  any  incentive  to  further  prepa- 
ration for  teaching  in  the  elementary  schools,- — a  work  as  important  as 
any  other. 

Table  IV  which  gives  the  distribution  of  the  salaries  for  elementary, 
intermediate  and  high  school  teachers  combined,  shows  the  effect  of 
the  higher  salaries  paid  the  teachers  in  the  two  upper  divisions  in  rais- 
ing the  median  salaries  over  those  for  elementary  teachers.  The 
median  salary  for  all  teachers  in  cities  of  Group  I  is  only  $1,013. 
Half  the  teachers  in  these  cities  get  less  than  $1,013  a  year,  less  than 
$85  a  month  for  the  twelve  months.  This  shows  the  seriousness  of 
the  salary  problem  in  the  larger  cities.  Some  of  these  cities  have 
already  set  the  minimum  salary  at  $1,200  a  year,  nearly  $200  more 
than  the  present  median  salary. 


18 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  V 
ELEMENTARY  TEACHERS'  SALARIES  FOR  1918-19  IN  THE  392  CITIES  REPORTING 
(Distributed  according  to  geographical  grouping  and  salaries  received.)* 


Number  of  teachers  in  each  geographical  group 

Salary- 

Groups 

A 

B 

C 

D 

E 

Totals 

$  200-  249 

10 

10 

250-  299 

300-  349 

68 

106 

2 

176 

350-  399 

9 

68 

13 

14 

104 

400-  449 

45 

114 

15 

10 

6 

190 

450-  499 

91 

247 

68 

34 

7 

447 

500-  549 

250 

246 

151 

89 

7 

743 

550-  599 

568 

328 

256 

161 

4 

1317 

600-  649 

754 

448 

417 

201 

65 

1935 

650-  699 

815 

267 

526 

239 

94 

2041 

700-  749 

925 

943 

473 

260 

171 

2772 

750-  799 

829 

1322 

471 

351 

177 

3150 

800-  849 

1135 

729 

453 

516 

282 

3115 

850-  S99 

899 

402 

335 

381 

208 

2225 

900-  949 

666 

1282 

380 

547 

385 

3260 

950-  999 

885 

120 

264 

369 

304 

1942 

1000-1049 

825 

91 

194 

408 

404 

1922 

1050-1099 

378 

28 

213 

142 

226 

987 

1100-1149 

223 

62 

93 

738 

279 

1595 

1150-1199 

113 

59 

160 

91 

651 

1074 

1200-1249 

67 

5 

138 

428 

418 

1056 

1250-1299 

101 

7 

6 

610 

219 

943 

1300-1349 

19 

5 

32 

58 

88 

220 

1350-1399 

13 

5 

72 

544 

634 

1400-1449 

16 

1 

14 

15 

479 

525 

1450-1499 

6 

1 

1 

8 

1500-1599 

13 

2 

10 

11 

5 

41 

1600-1699 

13 

1 

6 

15 

15 

50 

1700-1799 

9 

5 

2 

16 

1800-1899 

3 

1 

8 

12 

1900-1999 

3 

1 

4 

2000-2099 

1 

1 

2100-2199 

1 

1 

2200-2299 

1 

1 

2300-2399 

2400-2499 

2500-2999 

3000-and 

over. 

Totals 

9738 

7048 

4900 

5771 

5042 

32499 

**Q1 

$  690 

$  669 

$  679 

S  808 

$  935 

$  721 

Median 

823 

773 

807 

961 

1132 

856 

Q3 

964 

888 

972 

1141 

1271 

1025 

Q 

137 

110 

147 

167 

168 

152 

*  For  explanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages  lo  and  ii. 

In  tables  V  to  VIII,  inclusive,  the  salaries  of  teachers  in  392  cities 
are  distributed  according  to  geographical  grouping.  Tables  \ ,  VI 
and  VII  give  the  distribution  of  elementary,  intermediate  and  high 
school  teachers'  salaries,  and  Table  \TII  a  combination  of  these  three. 
These  tables  show  that  the  range  of  salary  is  almost  as  great  within 
a  geographical  group  as  it  is  within  size  groups.  They  also  show 
that  there  is  nearly  as  much  difiFerence  between  the  median  salaries 
of  different  geographical  groups  as  there  is  between  the  median  salaries 
of  size  groups.  The  median  salaries  for  elementary,  intermediate 
and  high  school  teachers  are  higher  in  Group  E'than  in  any  other 
group,  arud  lower  in  Group  R  than  in  the  others.     The  quartile  devia- 


TEAClUiRS'  S.IL.IRJES  AXD  SALARY  SCHEDULES 


19 


TABLE  VI 
INTERMEDIATE  TEACHERS'  SALARIES  FOR  1918-19  IN  THE  392  CITIES  REPORTING 
(Distributed  according  to  geographical  grouping  and  salary  received.)* 


Salary 

Number  of  teachers  in  each  geographical  group 

Groups 

.\ 

B 

C 

D 

E 

Tola. 

S  200-  249 

250-  299 

300  349 

350-  399 

400-  449 

450-  499 

500-  549 

550-  599 

600-  649 

650-  699 

700  749 

750-  799 

800-  849 

850-  899 

900-  949 

950-  999 

1000-1049 

1050-1099 

1100-1149 

1150-1199 

1200-1249 

1250-1299 

1300-1349 

1350-1399 

1400-1449 

1450-1499 

1500-1599 

1600-1699 

1700-1799 

1800-1899 

1900-1999 

2000-2099 

2100-2199 

2200-2299 

2300-2399 

2400-2499 

2500-2999 

3000-and 

over. 

1 

1 

3 

35 

22 

55 

30 

32 

38 

26 

24 

75 

77 

34 

75 

43 

34 

19 

37 

2 

5 

3 

2 

3 

3 

1 

3 

5 

19 

41 

26 

31 

25 

9 

15 

27 

29 

IS 

10 

17 

IS 

13 

14 

1 

5 

8 

7 

1 

1 

1 
8 
15 
19 
51 
71 
38 
49 
54 
19 
24 
24 
23 
27 
18 

'I 
2 
8 

1 
1 

3 
1 
3 
2 

1 

1 

5 

3 

6 

8 

29 

15 

26 

25 

47 

13 

15 

6 

19 

10 

8 

2 

23 

23 

13 

8 

12 

7 

2 

4 

5 

1 

1 

1 

4 

19 

21 

23 

19 

35 

18 

34 

35 

23 

8 

42 

14 

18 

1 

8 

16 

6 

4 

1 

5 

6 

28 

87 

70 

117 

154 

148 

140 

146 

189 

140 

160 

116 

155 

101 

116 

47 

92 

36 

41 

28 

22 

IS 

8 

6 

8 

2 

1 

1 

Totals 

680 

337 

483 

336 

350 

2186 

♦*Q1 
Median 
Q3 
Q 

S  786 

999 

1138 

176 

S  631 

832 

1039 

204 

S  769 

889 

1078 

155 

$  833 

962 

1330 

249 

S  899 

1000 

1226 

164 

S  777 

951 

1143 

183 

*  For  e.xplanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages  lo  and  ii. 


tion  differs  as  much  as  between  size  groups.  For  elementary  teachers. 
Group  E  not  only  has  the  highest  median  salary,  but  also  the  largest 
quartile  deviation.  For  intermediate  teachers  the  largest  quartile 
deviations  are  in  Groups  D  and  B,  and  for  high  school  teachers  they 
are  in  D  and  C.  When  all  the  teachers  are  considered  together  it  is 
found  that  quartile  deviations  increase  directly  as  the  median  salary 
increases.  This  is  due  to  the  fact  that  in  any  geographical  section  the 
salaries  are  increast  by  some  states  and  not  others,  or  by  certain  cities 
and  not  others,  but  in  enough  instances  to  increase  the  median  salaries 
for   the   entire   section.      This   leaves   a   greater   difference,   however, 


2U 


XAllUXAL   tDLLATlUA   ASSUCIATION 


TABLE   VII 
HIGH  SCHOOL  TEACHERS'  SALARIES    FOR  1918-19   IN  THE  392  CITIES   REPORTING 
(Distributed  according  to  geographical  grouping  and  salaries  received.)* 


Number  of 

teachers  in  each  geographical  group 

Salary 

Groups 

A 

B 

C 

D 

E 

Totals 

$  200-  249 

250-  299 

300-  349 

350-  399 

1 

1 

2 

4 

400-  449 

1 

1 

2 

450-  499 

1 

3 

4 

500-  549 

6 

1 

7 

550-  599 

9 

3 

2 

2 

16 

600-  649 

2 

4 

4 

10 

650-  699 

19 

14 

6 

2 

41 

700-  749 

28 

34 

8 

6 

76 

750-  799 

68 

50 

28 

15 

161 

800-  849 

76 

63 

59 

30 

4 

232 

850-  899 

162 

56 

122 

59 

8 

407 

900-  949 

101 

46 

112 

60 

21 

342 

950-  999 

189 

94 

153 

149 

45 

630 

1000-1049 

161 

30 

114 

61 

17 

383 

1050-1099 

198 

443 

102 

124 

43 

910 

1100-1149 

134 

21 

69 

76 

26 

326 

1150-1199 

144 

45 

61 

78 

51 

379 

1200-1249 

200 

126 

102 

119 

82 

627 

1250-1299 

107 

20 

43 

58 

41 

269 

1300-1349 

96 

38 

88 

58 

91 

371 

1350-1399 

110 

24 

43 

44 

69 

290 

1400-1449 

100 

30 

84 

110 

112 

436 

1450-1499 

59 

6 

27 

19 

60 

171 

1500-1599 

125 

66 

77 

69 

306 

643 

1600-1699 

85 

37 

61 

86 

316 

585 

1700-1799 

54 

12 

39 

77 

131 

313 

1800-1899 

53 

42 

44 

215 

115 

469 

1900-1999 

40 

35 

54 

32 

131 

292 

2000-2099 

44 

10 

21 

44 

14 

133 

2100  2199 

35 

1 

5 

4 

38 

83 

2200-2299 

9 

3 

13 

17 

4 

44 

2300-2399 

5 

4 

9 

18 

2400-2499 

4 

1 

32 

37 

2500-2999 

7 

4 

11 

3000-and 

over. 

1 

1 

2 

Totals 

2529 

1440 

1576 

1694 

1751 

8990 

**Q1 

S  943 

S  947 

$   917 

$1015 

$1341 

$  991 

Median 

1139 

1036 

1107 

1273 

1559 

1224 

Q3 

1394 

1236 

1424 

1708 

1698 

1559 

Q 

226 

145 

254 

347 

179 

284 

*For  explanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages  lo  and  ii. 


between  the  places  remaining  on  the  old  schedules  and  those  on  the 
new,  and  consequently,  increases  the  quartile  deviation. 

Subsequent  tables  will  show  that  the  sectional  differences  which 
now  exist  in  salaries  are  caused  by  several  conditions.  Some  of 
these  are  traditional  schedules,  public  indifference  and  the  like,  and 
such  are  easily  removed.  Some  of  the  conditions,  however,  are  more 
fundamental  and  involve  the  organization  of  school  control,  the  lack 
of  expert  control  of  school  budgets,  and  the  very  low  per  capita 
wealth  in  certain  sections.  These  problems  are  harder  to  solve ;  as 
a  matter  of    fact,   under  the  present   plan   of    free   competition  they 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


21 


TABLE  VIII 

ELEMENTARY.    INTERMEDIATE    AND    HIGH    SCHOOL    TEACHERS'    SALARIES    FOR 

1918-19    IN    THE    392    CITIES    REPORTING 

(Distributed  according  to  geographical  grouping  and  salaries  received.)* 


Number  of 

teachers'in  each  geographical  group 

Salary 

Groups 

A 

B 

C 

D 

E 

Totals 

$  200-  249 

10 

10 

2.S0-  299 

300-  349 

70 

107 

2 

2 

181 

350-  399 

10 

69 

13 

14 

106 

400-  449 

46 

120 

15 

11 

7 

199 

450-  499 

92 

258 

68 

35 

7 

460 

500-  549 

262 

268 

154 

96 

7 

787 

550-  599 

60S 

373 

268 

164 

4 

1414 

600-  649 

795 

538 

438 

209 

66 

2046 

650-  699 

898 

432 

553 

253 

98 

2234 

700-  749 

1023 

1018 

552 

304 

190 

3087 

750-  799 

937 

1394 

601 

396 

202 

3530 

800-  849 

1335 

800 

613 

601 

313 

3662 

850-  899 

1028 

475 

496 

466 

248 

2713 

900-  949 

879 

1405 

587 

743 

465 

4079 

950-  999 

1121 

165 

397 

443 

339 

2465 

1000-1049 

1100 

544 

320 

547 

481 

2992 

1050-1099 

546 

66 

306 

224 

287 

1429 

1100-1149 

442 

122 

377 

835 

353 

2129 

1150-1199 

257 

148 

214 

137 

685 

1441 

1200-1249 

301 

145 

256 

555 

542 

1799 

1250-1299 

227 

28 

60 

670 

274 

1259 

1300-1349 

152 

48 

129 

139 

197 

665 

1350-1399 

125 

32 

SO 

139 

614 

960 

1400-1449 

121 

38 

■  106 

138 

599 

1002 

1450-1499 

68 

7 

27 

28 

77 

207 

1500-1599 

140 

69 

88 

92 

317 

706 

1600-1699 

101 

38 

68 

108 

335 

650 

1700-1799 

66 

12 

47 

«1 

131 

337 

1800-1899 

57 

42 

46 

227 

115 

487 

1900-1999 

40 

38 

57 

37 

132 

304 

2000-2099 

44 

11 

23 

44 

14 

136 

2100-2199 

35 

1 

6 

5 

38 

85 

2200-2299 

7 

4 

13 

17 

4 

45 

2300-2399 

5 

5 

9 

19 

2400-2499 

4 

1          32 

37 

2500-2999 

7 

4 

11 

3000-and 

over 

1 

1 

2 

Totals 

12,947 

8,825 

6,959 

7,801 

7,143 

43.675 

**Q1 

S  722 

S  702- 

S  721 

S  839 

$  976 

S  756 

Median 

869 

794 

871  I       lOlS 

1187 

917 

Q3 

1028 

927 

1074  1       1233 

1398 

1132 

Q 

153 

113 

177  )        197 

211 

188 

*For  explanation  of  geographical  groups  see  page  9. 
**For  explanation   of  terms  used  see  p^ges   lo  and   ii. 

are  constantly  growing  worse.  For  example,  many  districts  in  Sec- 
tion B  are  carrying  the  maximum  tax  allowed  by  law  for  school 
purposes,  and  are  yet  unable  to  meet  the  salary  schedules  of  other 
sections.  They  are,  therefore,  compelled  to  take  inferior  teachers 
or  teachers  with  less  professional  training,  which  will,  in  turn,  tend 
to  decrease  the  per  capita  wealth  still  more,  in  spite  of  the  fact  that 
the  particular  community  is  more  progressive  educationally  and  carries 
a  heavier  tax  burden  than  other  places  which  outbid  it  for  teachers. 

Some  of  the  findings  of  this  study  of  teachers'  salaries  will  show 
the  extent  to  which  these  conditions  exist,  and  where  possible,  will  be 
made  to  throw  light  on  the  remedy.  It  is  obvious  that  as  prices  of 
food,  clothing,  labor,  cost  of  education,  etc.,  are  becoming  standardized 
for  the  nation,  there  should  not  be  a  sectional  difference  in  median 


22 


NATIONAL  EDUCATION  ASSOCIATION 


CHART    II 


CHART  SHOWING  MEDIAN   SALARIES  FOR  CITIES  IN  THE  DIFFERENT   GEO- 
GRAPHICAL  GROUPS    FOR   ELEMENTARY   TEACHERS.    INTERMEDIATE 
TEACHERS     HIGH    SCHOOL   TEACHERS.    AND    FOR    THE    TOTAL 
OF    THE    THREE. 


Salary 
1600 

1500 

1400 

1"500 

1200 


^"1        Elementary 
Intermediate 


High   School 

Total  for  all  teachers 


salaries  for  elementary  teachers  of  $359  or  46  per  cent  (between  B 
and  E). 

In  connection  with  the  salaries  paid  in  the  392  cities,  as  shown  in 
the  preceding  tables,  comparisons  with  those  paid  in  New  York  City 
for  the  same  period  are  valuable.  A  distribution  was  made  from  the 
salaries  as  recorded  in  the  "Tentative  Budget  Estimate  for  1919  of  the 
Board  of  Education  of  the  school  district  of  New  York,  N.  Y."  which 
was  adopted  August  29,  1918,  and  so  represents  the  salaries   for  the 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


23 


TABLE  IX 

Distribution  of  Salaries  of   Men   and   Women   Teachers   in 
the   Day   Elementary   Schools   of   New   York   City   for   the 
School  Year  1918-19. 


Salary 
Groups 

Men 

Women 

Totals 

S  too-  849 

67 

2153 

2220 

i-sQ-   899 

78 

78 

900-  949 

5 

2830 

2835 

9.S0-  999 

1 

748 

749 

1000-1049 

57 

533 

590 

1050-1099 

1 

755 

756 

1100-1149 

17 

567 

584 

1150-1199 

82 

82 

1200-1249 

125 

666 

791 

1 '50-1299 

1 

701 

702 

1300-1349 

23 

621 

644 

1350-1399 

383 

383 

1400-1449 

-.9 

596 

645 

1450-1499 

14 

14 

150-1549 

63 

3737 

3800 

1550-1599 

1 

80 

81 

1600-1649 

19 

84 

103 

1650-1699 

3i 

105 

138 

1700-1749 

51 

100 

151 

1750-1799 

1 

20 

21 

1800-1849 

91 

1488 

1579 

1850-1899 

1 

453 

454 

1900-1949 

14 

52 

66 

1950-1999 

31 

55 

86 

200  -2049 

9 

1 

10 

20SO-20  9 

12 

47 

59 

2100-2149 

52 

3 

55 

2150-2199 

32 

32 

2200-2249 

1 

1 

2250-2299 

31 

3 

34 

2300-2349 

1 

1 

2350-2399 

2400-2449 

547 

4 

551 

2450-2499 

2500-2549 

2550-2599 

2600-2649 

2650-2699 

1 

1 

Totals 

1336 

16.960 

18,296 

**Q1 

$1438 

§  936 

$  941 

Med 'an 

"  2083 

1255 

1279 

Q3 

2420 

1527 

1536 

Q 

491 

296 

298 

**For  explanation  of  terms  used  see  pages   lo  and   ii. 


school  year  1918-19.  Tables  IX  and  X  give  the  distributions  for  men 
and  for  women  in  the  day  elementary  schools  and  in  the  day  high 
schools.  The  median  salary  for  men  in  the  elementary  schools  is 
over  $800  more  than  the  median  salary  for  women.  This  is  due  to 
the  double  basis  for  granting  salaries  which,  until  recently,  existed  in 
New  York  City.  The  men  are,  however,  such  a  small  proportion  of 
the  total  \number  in  the  elementary  schools  that  their  higher  salaries 
only  raise  the  median  for  the  entire  group  by  .$24.  The  quartile 
deviation  for  the  men  is  very  large,  due  to  the  large  number  of  men 
who  have  reacht  the  maximum  of  $2,400.  and  the  relatively  low 
salaries  of  the  men  who  have  entered  since  the  "equal  pay  for  equal 
work"  plan  was  adopted.  The  median  salary  of  $1,279  for  New  York 
City  is  $343  more  than  the  median  salary  for  all  cities  in  this  study 


24 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  X 

Distribution  of  Salaries  ol  Men  and  Women  Teachers  n  the 
Day  High  Schools  of  New  York  City  for  the  School  Year 
1918-19. 


Salary  Groups 

Men 

Women 

Totals 

$  900-  949 

11 

18 

29 

950-  999 

1000-1049 

28 

33 

61 

1050-1099 

1200-1249 

1250-1299 

1300-1349 

41 

■2 

Ki 

1350-1399 

1400-1449 

1450-1499 

22 

32 

54 

1500-1549 

1550-1599 

1600-1649 

25 

41 

66 

1650-1699 

1700-1749 

4 

1 

5 

1750-1799 

34 

44 

78 

1800-1849 

1850-1899 

1900-1949 

43 

56 

99 

1950-1999 

2000-2049 

2050-2099 

96 

135 

231 

2100-2149 

2150-2199 

3 

3 

2200-2249 

25 

44 

69 

2250-2299 

2300-2349 

11 

21 

32 

2350-2399 

37 

37 

74 

2400-2449 

9 

1 

10 

2450-2499 

2500-2549 

126 

110 

2i(> 

2550-2599 

2600-2649 

2650-2699 

308 

485 

793 

2700-2749 

2750-2799 

2800-2849 

2850-2899 

2900-2949 

4 

4 

2950-2999 

3000-3049 

30S.J-3099 

3100-3149 

3150-3199 

96 

27 

123 

3200-3249 

3250-3299 

1 

1 

Totals 

932 

1155 

2087 

*Q1 

$2059 

$1944 

S2052 

Median 

2527 

2520 

2524 

Q3 

2679 

2673 

2675 

Q 

310 

364 

311 

**For  explanation  of  terms  used  see  pages   lo  and   ii. 

with  more  than   100,000  population,   and   is  $423    (nearly    V2)    more 
than  the  median  salary  of  the  392  cities  reporting. 

There  is  not  such  a  difference  between  the  median  salaries  of  men 
and  women  in  the  high  school  as  is  found  between  the  salaries  of 
elementary  teachers.  The  median  salary  for  men  is  only  $7  more 
than  that  for  women,  and  the  quartile  deviation  is  smaller  by  $45. 
The  significant  fact  about  the  median  high  school  salary  in  New  York 
City  is  that  it  is  $1,011  (67%)  higher  than  the  median  high  school 
salary  for  cities  in  Group  I,  and  $1,300  (106%)  higher  than  the  median 


It.lLHhHS'  S.lL.lNlhS  AM)   ^.U.JR)    SCHEULLES 


25 


TABLE  XI 
DISTRIBUTION  OF  SALARIES  OF  ELEMENTARY  TEACHERS  IN  NEW  YORK.  PITTS- 
BURGH AND  NEWARK.  COMPARED  WITH  TWO  OTHER  GROUPS  OF  CITIES 


1 

2 

3 

4 

5* 

6 

7 

Salary 

Groups 

New 

Pitts- 

Total 

Total 

Total 

Totals 

York 

burgh 

Newark 

for 

29 

392 

for 

City 

1,  2  &  3 

Cities 

Cities 

4,  S  &6 

$200-  249 

10 

10 

250-  299 

300-  349 

176 

176 

350-  399 

104 

104 

400-  449 

34 

190 

224 

450-  499 

6 

447 

453 

500-  549 

102 

743 

845 

550-  599 

4 

4 

120 

1317 

1441 

600-  649 

3 

3 

239 

.  1935 

2177 

650-  699 

222 

2041 

2263 

700-  749 

294 

94 

388 

349 

2772 

3509 

750-  799 

71 

22 

93 

Ml 

3150 

3580 

800-  849 

2220 

76 

171 

2467 

326 

3115 

5908 

850-  899 

78 

66 

68 

212 

287 

2225 

2724 

900-  949 

2835 

41 

105 

2981 

519 

3260 

6760 

950-  999 

749 

58 

79 

886 

422 

1942 

3250 

1000-1049 

590 

180 

65 

835 

601 

1922 

3358 

1050-1099 

756 

58 

53 

867 

495 

987 

2349 

1100-1149 

584 

734 

87 

1405 

232 

1595 

3232 

1150-1199 

82 

19 

1 

102 

166 

1074 

1342 

1200-1249 

791 

244 

103 

1138 

383 

1056 

2577 

1250-1299 

702 

702 

72 

943 

1717 

1300-1349 

644 

4 

475 

1123 

448 

202 

1773 

1350-1399 

383 

383 

6 

634 

1023 

1100-1449 

645 

3 

69 

717 

18 

525 

1260 

1450-1499 

14 

14 

8 

8 

30 

150.0-1599 

3881 

12 

175 

4068 

1 

41 

4110 

1600-1699 

241 

32 

69 

342 

7 

50 

399 

1700-1799 

172 

14 

186 

2 

16 

304 

lSOO-1899 

2033 

48 

2081 

12 

2093 

1900-1999. 

152 

2 

154 

4 

158 

2000-2099 

69 

2 

71 

1 

72 

2100-2199 

87 

87 

1 

88 

2200-2299 

35 

35 

1 

36 

2300-2399 

1 

1 

1 

2400-2499 

551 

551 

551 

2500  2999 

1 

1 

1 

3000-and 

over. 

Totals 

18296 

1896 

1705 

21897 

5412 

32499 

59808 

**Qi 

S  940 

S  872 

S  933 

S  939 

$  792 

$  721 

S  802 

Median 

1283 

1107 

1300 

1231 

969 

856 

948 

Q3 

1568 

1139 

1345 

1552 

1100 

1025 

1222 

*For  list  of  these  29  cities  see  those  marked  with  a 
**For  explanation  of  terms  used  see  pages  10  and   11. 


in  Appendix  I. 


salary  for  all  high  school  teachers  in  392  cities.  In  order  to  have  some 
results  of  this  study  available  to  school  men  by  the  close  of  the  school 
year  it  was  found  necessary  to  close  the  tables  before  the  returns  were 
received  from  Pittsburgh,  Pa.,  and  Newark,  N.  J.  Since  they  are  both 
large  industrial  cities  in  Group  A,  Size  I,  their  distributions  have  been 
combined  with  those  of  New  York  in  order  that  they  may  be  compared 
not  only  with  the  returns  from  the  392  cities  previously  reported,  but 
also  with  a  summary  of  29  other  cities^  whose  replies  were  received 
too  late  to  be  incorporated  in  the  main  study. 


1  The  20  cities  included  in  this  distribution  arc  starred   *   in  the  list  in   Appendix   1 . 


26 


NATIONAL  EDUCATION  ASSOCIATION 


TALBE  XII 

DISTRIBUTION  OF  SALARIES  OF  HIGH  SCHOOL  TEACHERS  IN  NEW  YORK,  PITTS- 
BURGH AND  NEWARK,  COMPARED  WITH  TWO  OTHER  GROUPS  OF  CITIES 


1 

2 

3 

4 

5* 

6 

7 

Salary 

Groups 

New 

Pitts- 

Total 

Total 

Total 

Totals 

York 

burgh 

Newark 

for 

29 

392 

for 

City 

1,  2  &  3 

Cities 

Cities 

4.  5  &6 

$   200-  249 

250-  299 

300-  349 

4 

4 

350-  399 

2 

2 

400-  449 

4 

4 

450-  499 

7 

7 

500-  549 

4 

4 

16 

20 

550-  599 

3 

3 

2 

10 

1.5 

600-  649 

1 

4 

5 

2 

41 

48 

650-  699 

1 

1 

7 

76 

84 

700-  749 

1 

1 

8 

161 

170 

750-  799 

1 

1 

27 

232 

260 

800-  849 

1 

1 

27 

407 

435 

850-  899 

20 

342 

362 

900-  949 

29 

2 

3 

34 

48 

630 

712 

950-  999 

27 

383 

410 

1000-1049 

61 

8 

1 

70 

90 

910 

1070 

1050-1099 

49 

326 

375 

1100-1149 

18 

1 

19 

99 

379 

497 

1150-1199 

60 

266 

326 

1200-1249 

5 

6 

11 

133 

627 

771 

1250-1299 

1 

1 

56 

269 

326 

1300-1349 

93 

11 

8 

112 

132 

371 

615 

1350-1399 

1 

1 

47 

290 

338 

1400-1449 

16 

12 

28 

123 

436 

587 

1450-1499 

54 

54 

28 

171 

253 

1500-1599 

18 

21 

39 

146 

643 

828 

1600-1699 

66 

39 

13 

118 

202 

585 

905 

1700-1799 

83 

36 

1 

120 

.   33 

313 

466 

1800-1899 

38 

18 

56 

71 

469 

596 

1900-1999 

99 

40 

3 

142 

25 

292 

459 

2000-2099 

231 

26 

10 

267 

5 

133 

405 

2100-2199 

3 

32 

10 

45 

4 

83 

132 

2200-2299 

69 

23 

24 

116 

44 

160 

2300-2399 

106 

17 

12 

135 

2 

18 

155 

2400-2499 

10 

59 

11 

80 

37 

117 

2500-2999 

1033 

64 

1097 

11 

1108 

3000-and 

over. 

124 

18 

142 

2 

144 

Totals 

2061 

391 

251 

2703 

1473 

8990 

13166 

**Q1 

$2013 

SI  643 

SI  580 

SI  894 

S1132 

S991 

$1035 

Median 

2512 

1904 

2215 

2376 

1332 

1224 

1357 

Q3 

2562 

2205 

f  2530 

2551 

1583 

1559 

1790 

*For  list  of  these  29  cities  see  those  marked  with  a 
**For  explanation  of  terms  used  see  pages  :o  and    11, 


in  Appendix   I. 


Table  XI  for  elementary  teachers  shows  the  median  salary  for 
Pittsburgh  to  be  $1,150,  and  for  Newark  $1,300.  A  total  for  these  3 
cities  gives  a  median  of  $1,231.  This  is  $262  higher  than  the  median 
salary  for  elementary  teachers  in  the  29  cities  mentioned  above,  and 
$375  higher  than  the  median  salary  in  the  392  cities.  The  distribution 
of  the  59,808  elementary  teachers,  which  is  the  total  for  all  cities  in 
the  report,  including  New  York  City,  gives  a  median  salary  of  $948. 
The  difference  between  this  and  $856  for  the  392  cities  studied  is 
largely  the  effect  of  including  the  New  York  City  teachers  in  the  dis- 
tribution, and  gives  a  median  salary  much  too  high  to  represent  actual 
conditions  as  they  are. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  27 

Table  XII  gives  a  similar  distribution  for  high  school  teachers,  and 
shows  the  median  salary  for  New  York,  Pittsburgh  and  Newark  to  be 
$2,376,  \\hich  is  $1,044  more  than  the  median  salary  for  the  29  cities, 
and  $1,152  more  than  the  median  salary  for  the  392  cities.  The 
median  salary  for  the  total  distribution  for  all  cities,  including  New 
York,  is  $i,357,  due  again  largely  to  the  salaries  of  the  2000  New 
York  high  school  teachers  for  whom  the  median  salary  is  more  than 
$2,500.  The  differences  between  salaries  in  different  city  groups  and 
in  different  sections,  as  evidenst  by  the  above  tables,  are  relatively  very 
small  in  comparison  with  the  differences  existing  between  individual 
cities.  Included  in  the  distributions  are  the  following  cities  paying 
their  elementary  teachers  a  median  salary  of  $1,300  or  more:  Newark, 
New  Jersey,  $1,300;  Anaconda,  Montana,  $1,301  ;  Berkeley,  California, 
$1,310;  Oakland,  California,  $1,359;  Cleveland  Heights,  Ohio,  $1,413; 
Seattle,  Washington,  $1,421.  Included  in  the  distribution  also  are 
cities  paying  medium  salaries  of  less  than  half  of  these  figures, — $540, 
$532,  $519,  and  $SSS  are  actual  median  salaries  paid  to  elementary 
teachers  in  cities  and  towns  of  over  5000  population.  The  difference 
between  cities  in  the  matter  of  median  salaries  for  high  school  teachers 
is  much  more  than  between  elementary  teachers,  varying  between 
New  York  City,  with  its  median  of  $2,500,  to  some  of  the  small  high 
schools,  paying  median  salaries  of  about  ^4  of  this.  A  study  of  the 
distributions  of  salaries  for  elementary  and  high  school  teachers  for 
individual  cities  will  convince  anyone  that  the  settlement  of  the  salary 
problem  up  to  the  present  time  has  been  purely  a  matter  of  local 
adjustment,  the  result  of  a  progressive  superintendent,  of  an  active 
teacher's  organization  or  the  recognition  of  the  importance  of  teaching 
by  a  group  of  progressive  citizens  within  a  community.  There  is  no 
evidence  within  any  city  size  or  geographical  group  of  a  united  attempt 
to  in  any  way  standardize  salaries  paid,  or  to  make  a  general  adjust- 
ment of  teachers'  salaries  to  living  conditions. 

"What  increases  in  salary  were  granted  to  each  group  this 
year?"*  was  the  next  question  askt  on  the  questionnaire  to  superin- 
tendents. A  distribution  of  the  teachers  receiving  increases,  regard- 
less of  the  amount  of  the  increase,  arranged  according  to  the  salaries 
of  the  teachers  receiving  these  increases,  results  in  the  following  quar- 
tile  distributions. 

A  comparison  of  the  medians  and  the  median  deviations  of  the 
salaries  of  teachers  receiving  increases  with  the  medians  and  median 
deviations  of  the  actual  salary  distributions  as  given  in  Tables  I-VIII, 
inclusive,  and  summarized  in  Table  XIII,  will  show :  first,  that  the 
median  salaries  of  those  receiving  increases  are  in  most  cases  slightly 


^  For  copy   of  questionnaire   see   insert  after  jiage   7. 


28 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XIII 
gi'ARTlLE    DISTRIBUTIONS   OF   SALARIES   OF   TEACHERS    RECEIVING    INCREASES 

DURING   1918-19. 

CArranged  according  to  Size  and  Geographical  Groups*  for  Elementary,    Intermediate    and    High 

Schoo'  Teachers) 


Size  Groups 

I 

II 

III 

IV 

V 

VI 

Totals 

Elementary 

No  .of  Teachers 

9637 

2983 

4792 

4299 

1766 

1968 

25445 

'*Q1 

$  808 

S  754 

$  758 

$  622 

$  563 

$  634 

$  702 

iMedian 

902 

893 

874 

781 

672 

693 

844 

Q3 

1184 

1031 

1006 

920 

791 

782 

1013 

Q 

188 

139 

124 

129 

114 

74 

156 

latermediate 

No.  of  Teachers 

953 

176 

374 

404 

355 

286 

2548 

**Q1 

S  773 

$  789 

S  917 

%   802 

S  670 

S  651 

$  804 

Median 

796 

980 

1030 

950 

773 

734 

876 

Q3 

1074 

1058 

1083 

1100 

853 

829 

1047 

Q 

151 

135 

83 

149 

92 

89 

122 

High  School 

No.  of  Teacliers 

2481 

822 

1344 

1367 

709 

839 

7562 

*Q1 

$1120 

$1105 

$1046 

$  932 

$  858 

$  818 

$  982 

Median 

1469 

noA 

1260 

1092 

904 

916 

1210 

Q3 

1741 

i5i<; 

1525 

1352 

1105 

1037 

1520 

Q 

.Sll 

207 

240 

210 

124 

110 

269 

Geographical 

Groups 

A 

B 

C 

D 

E 

Total 

Elementary 

No.'of  Teachers 

7723 

5775 

4246 

3196 

4505 

25445 

**Q1 

$  690 

S  693 

S  685 

$  779 

$  940 

$  702 

Median 

808 

796 

811 

917 

1154 

844 

Q3 

943 

886 

971 

1088 

1302 

1013 

Q 

132 

97 

143 

155 

181 

156 

Intermediate 

No.  of  Teachers 

662 

910 

457* 

255 

264 

2548 

**Q1 

$  799 

$  809 

S  759 

$  849 

$  845 

$  804 

Median 

1005 

831 

871 

936 

970 

876 

Q3 

1142 

945 

1049 

1309 

1084 

1047 

0 

172 

68 

145 

230 

120 

122 

High  School 

No.  of  Teachers 

2141 

1319 

1410 

1141 

1551 

7562 

**Q1 

S  942 

%   955 

$  923 

S  948 

$1336 

$  982 

Median 

1128 

1025 

1124 

1156 

1533 

1210 

Q3 

1369 

1243 

1436 

1560 

1783 

1520 

Q 

214 

144 

257 

306 

224 

269 

*For  explanation  of  size  and  geographica   groups  see  pages  9. 
**For  explanation  of  terms  used  see  pages   lo  and    ii. 

below  the  median  salaries  of  the  groups,  and  second,  that  the  quartile 
deviation  is  very  nearly  the  same  as  in  the  distribution  of  the  salaries 
received.  The  fii'st  point  v\-ould  indicate  that  there  is  a  tendency  to  give 
increases  to  tb.e  lower  salaried  teachers  more  than  to  the  upper,  but 
this  tendency  is  so  slight  that  it  hardly  deserves  the  name  even  of  a 
tendency.  The  second  fact  seems  to  contradict  this  conclusion  by 
showing  tint  increases  are  given  over  the  entire  range  of  salaries.  It 
was  also  observed  in  examining  the  superintendents'  blanks  as  they 
were  returned,  that  where  any  increases  were  given  they  were  generally 
gi\'(n  to  all  teachers.  When  any  teachers  were  not  given  increases 
the}-  were  usually  ''new  teachers." 

.\.  stud}'  of  the  increases  given  to  teachers  during  1918-19  which 
bears  more  directly  upon  the  salary  question  is  the  amount  of  the  in- 


TEACHERS'  SALARIES  AMD  SALARy  SCJIEDLJ.liS 


29 


TABLE JXIV 
INCREASES  TO  ELEMENTARY  TEACHERS-  SALARIES  GRANTED  FOR  1918-19  IN  THE 

392  CITIES  REPORTING. 
(Distributed  according  to  size  of  city  and  amount  of  increased  received.)* 


Number  of 

teachers  ■ 

ti  each  ^ze 

group 

Si/ie  of  Increases 

I 

II 

II' 

I\' 

\' 

\'I 

Tot.ds 

S  0-S  "^'.99 

99 

21 

390 

265 

64 

270 

1109 

10-  19.99 

10 

16 

26 

20-  29.99 

195 

277 

52 

48 

572 

30-  39.99 

8 

80 

158 

25 

271 

40-  49.99 

178 

258 

2  70 

388 

342 

244 

1680 

SO-  59.99 

3139 

181 

469 

494 

139 

438 

4860 

60-  69.99 

271 

91 

489 

97 

113 

10)1 

70-  79.99 

1152 

135 

489 

386 

258 

109 

2529 

80-  89.99 

155 

217 

•  !I20 

12 

28 

432 

90-  99.99 

405 

69 

394 

139 

245 

176 

1429 

100-  109.99 

1762 

637 

804 

868 

171 

256 

4498 

110-  119  99 

39 

87 

51 

9 

12 

198 

120-  129.99 

685 

216 

159 

302 

2  7 

44 

14S3 

l.?0-  139.99 

76 

58 

50 

47 

37 

268 

140-  149,99 

118 

35 

64 

38 

9 

264 

150-  159.99 

422 

350 

215 

224 

68 

101 

1380 

160-  169.99 

223 

20 

5 

8 

256 

170-  179.99 

"is 

48 

14 

8 

118 

180-  189.99 

134 

20 

11 

165 

190-  199.99 

276 

44 

5 

1 

326 

200-  209.99 

394 

181 

202 

6 

2 

1 

10 

794 

210-  219.99 

15 

17 

220-  229.99 

56 

15 

9 

4 

84 

230-  239.99 

13 

13 

240-  249.99 

45S 

141 

5';9 

250-  259.99 

9!) 

22 

27 

139 

260-  269.99 

2 

27 

29 

270-  279.99 

432 

9 

441 

280-  289.99 

290-  299.99 

300-  3,-9.99 

II 

16 

27 

310-  319.99 

320-  329.99 

79 

79 

330-  339  99 

340-  349.99 

5.^ 

53 

350-  359.99 

5 

5 

360-  369.99 

•370-  379.99 

266 

266 

380-  389.99 

1 

1 

390-  399.99 

11 

11 

400-  409.99 

8 

8 

480-  489.99 

500-  509.99 

1968 
S  45 

Totals 

9637 

2983 

4792 

4299 

1766 

25445 

**Q1 

S  57 

S  71 

S  57 

S  51 

S  45 

S   5:, 

Median 

106 

106 

101 

74 

71 

59 

91 

Q3 

127 

152 

!,S6 

10.3 

98 

100 

123 

Q 

35 

41 

50 

29 

27 

28 

59 

*For  explanaiion  of  size  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages   10  and   11. 

creases  given.  Tables  XIV-XIX,  inclusive,  give  the  distribution  of 
the  increases  to  teachers'  salaries  granted  tor  1918-19  in  the  392 
cities  reporting.  The  distribution  is  made  according  to  size  and 
geographical  groups  for  the  cities  and  the  amount  of  the  increase 
received. 

These  tables  show  that  the  increases  received  during  the  preseni 


30 


SATIUNAL  EDUCATION   ASSOC!  AT  J  UN 


TABLE   XV 
INCRE.\SES  TO  INTERMEDIATE  TEACHERS' S.'\L.\RIESGR.\NTED  FOR  1918  19  IN  THE 

392  CITIES  REPORTING 
(Distributed  according  to  size  of  --ity  a-^d  amount  of  increase  received.)* 


1 

Number  of  teachers  in   eacii  size  croup 

Size  of  Increases 

I 

II 

III 

IV 

V 

VI 

Totals 

$     0-$     9.99 
10-     19.99 
20-     29.99 
30-     39.99 
40-     49.99 
SO-     59.99 
60-     (',9.99 
70-      79.99 
80-     89.99 
90-     99.99 
100-   109. t.9 

652 

2 
79 

3 

2 
27 

8 

-19 

12 

4 
81 

29 

14 

9 

8 

18 

192 

42 

29 

4 

22 

55 
15 
23 
3 
27 
42 

29 

7 
8 
10 

54 
31 
13 

52 

5 

57 

34 

80 

1 
5 

7 

12 
61 
U 

17 

5 

24 

10 

835 

8 

42 

16 

90 

190 
47 

120 
33 

209 

359 

110-   119.99 
120-   12C.99 
130-    139.99 
140-   149.99 
150-   159.99 
160-   169.99 
170-    179.99 
180-   189.99 
190-    199.99 
200-   209.99 

58 
10 

10 
10 

4 

31 
1 
3 
9 
7 

22 

4 

36 
7 
2 

5? 
2 
1 

12 
4 
1 

17 
14 
9 

7 

1 
2 

3 

2 

16 

12 

I 

3 

11 

113 

37 

11 

151 

6 

10 

23 

11 

36 

210-   219.99 
220-  229.99 
230-   239.99 
240-  249.99 
250-  259.99 
260-   269.99 
270-  279.99 
280-  289.99 
290-   299.99 
300-  309.99 

122 

1 
14 
5 
3 
4 

10 

4 

1 

2 

1 
1 

1 

20 

6 

rs 

11 
122 

1 

310-  319.99 
320-  329.99 
330-  339.99 
340-  349  99 
350-  359.99 
360-  369.99 
370-  379.99 
380-  389.99 
390-  399.99 
400-  409.99 

1 

1 

10 

1 
1 

10 

480-  489.99 
500-  509.99 

Totals 

953 

176 

374 

404 

355 

286 

2543 

**Q1 
Median 
Q3 
Q 

$     0 

0 

98 

$  72 

102 

107 

18 

$101 

106 

152 

26 

$  51 
93 
130 
40 

$  46 

75 
100 
27 

$     0 

57 
98 
49 

$       0 

74 

109 

55 

*For  explanation  of  size  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages   10  and   11. 

year  in  these  392  cities  vary  from  "no  increase"  to  $400  for  elementary 
and  intermediate  teachers,  and  to  $500  for  high  school  teachers.  The 
increases  most  frequently  received,  as  shown  by  the  number  of  teachers 
receiving  them,  are  "no  increase,"  $45,  $50,  $75,  $90,  $100,  $125  and 
$150  for  elementary  and  intermediate  teachers,  and  the  same,  but  with 
$200  and  $300  added  for  the  high  schools.  These  amounts  are  ex- 
plained by  the  practice  of  giving  increases  of  $5  and  $10  per  month. 


lEACHERS-  SAL.iKlES  ASD  SALARY  SCHEDILES 


.il 


TABLE  XVI 
INCREASES  TO  HIGH  SCHOOL  TEACHERS'  SALARIES  GRANTED  FOR  1918-19  IN  THE 

392  CITIES  REPORTING 
(Distributed  according  to  size  of  city  and  amount  of  increase  received.)* 


Number  of 

teachers  in  each  size 

group 

Sizr  o"^  Increases 

I 

II 

III 

IV 

\' 

VI 

Totals 

S  0-S  9.<-9 

457 

38 

116 

151 

153 

227 

1142 

10-  19.99 

12 

12 

20-   29.99 

4 

1 

7 

7 

19 

30-  39.99 

1 

y 

9 

5 

17 

40-   19.99 

78 

92 

64 

141 

87 

67 

529 

SO-  59.99 

185 

61 

108 

121 

64 

86 

625 

60-  69.99 

4 

83 

11 

11 

109 

70-  79.99 

100 

57 

166 

57 

29 

52 

461 

80-  89.99 

47 

25 

16 

U 

23 

122 

90-  99.99 

7 

16 

102 

69 

97 

84 

375 

100-  109.99  . 

707 

♦  168 

306 

375 

125 

98 

1779 

110-  119.99 

5 

9 

10 

3 

27 

120-  129.90 

i67 

102 

61 

25 

7 

15 

677 

130-  139.99 

36 

11 

27 

30 

104 

140-  149.09 

15 

14 

12 

1 

42 

ISn-  159.99 

105 

25 

101 

38 

29 

298 

160-  169.99 

1 

11 

5 

17 

170-  170.99 

10 

9 

10 

12 

1 

41 

180-  189.99 

7 

10 

19 

36 

190-  199.90 

27 

3 

6 

2 

4 

42 

200-  209.09 

92 

78 

78 

41 

11 

25 

325 

210-  219.99 

1 

4 

4 

9 

220-  229.99 

8 

4 

3 

8 

23 

230-  239.99 

1 

3 

1 

1 

16 

240-  249.99 

111 

1 

4 

116 

250-  259.99 

12 

6 

1 

2 

21 

260-  26^.99 

9 

2 

11 

2.0-  279.99 

65 

6 

7 

1 

79 

280-  289.99 

5 

4 

8 

2 

19 

290-  299.99 

2 

7 

1 

10 

300-  309.99 

Hi 

9 

28 

13 

373 

310-  319. 9y 

4 

1 

5 

320-  329.99 

6 

5 

11 

330-  339  99 

4 

4 

340-  349.99 

6 

1 

7 

350  359.99 

2 

2 

5 

9 

.560  369.99 

10 

10 

370-  379.9  ' 

380-  389.99 

7 

7 

390-  399.99 

1 

I 

400-  409.99 

20 

20 

480-  489.99 

1 

1 

500-  509.99 

2 

4 

2 

8 

TotaI= 

2481 

822 

1344 

1367 

709 

839 

7562 

**Q1 

S  55 

$  72 

$  72 

$  54 

$  47 

$  0 

$  53 

Median 

106 

106 

103 

101 

78 

71 

102 

Q3 

127 

152 

148 

120 

105 

106 

127 

Q 

36 

40 

38 

38 

29 

53 

37 

*For  explanation  of  size  groups  see  page  g. 
**For  explanation  of  terms  used  see  pages   lo  and   ii. 

which  amounts  to  the  $45,  $50,  $go  and  $100  increases  as  the  term  is 
nine  or  ten  months  in  length,  and  by  the  practice  of  giving  "lump  sum"' 
increases  of  $50,  $75,  $100,  $125  and  $150,  etc..  per  year.  These  tables 
;ilso  show  that  the  size  of  the  city  again  has  a  direct  effect,  and  that 
there  is  a  markt  tendency  for  the  "increase"  to  be  less  in  the  smaller 
cities.  It  is  also  noticeable  that  the  geographical  groups  which  pay 
the  highest  salaries  pay  slightly  higher  increases,  altho  there  are  several 


2>2 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XVII 

INCREASES  TO  ELEMENTARY  TEACHERS'  SALARIES  GRANTED  FOR  1918-19  IN  THE 

302    CITIES    REPORTING 

(Distributed  according  to  geograph.cal  grouping  and  amount  of  increase  received.)* 


Number  of  teachers  in  each  geographical  group 

Size  of 

increases 

1 

A 

B 

C 

D 

E 

Total . 

$  0-S  9.99 

273 

326 

114 

178 

218 

1109 

10-  19.99 

10 

14 

2 

26 

20-  29.99 

113 

54 

191 

166 

48  ! 

572 

30-  39.99 

99 

45 

28 

13 

86 

271 

40-  49.99 

263 

491 

287 

183 

456 

1680 

50-  59.99 

1665 

1763 

377 

794 

261 

4860 

60-  69.99 

154 

441 

140 

180 

146 

1061 

70-  79.99 

754 

606 

325 

71 

773 

2529 

80-  89.99 

332 

30 

45 

6 

19 

432 

90-  99.99 

322 

454 

265 

302 

86 

1429 

100-109.99 

1505 

861 

1073 

•  599 

460 

4498 

110-119.99 

142 

12 

27 

9 

8 

198 

120-129.99 

349 

21 

'73 

22 

868 

1433 

130-139.99 

143 

33 

46 

29 

17 

268 

140-149.99 

110 

66 

66 

22 

264 

150-159.99 

672 

431 

260 

5 

12 

1380 

160-169.99 

6 

1 

50 

42 

157 

256 

170-179.99 

8 

37 

30 

43 

118 

180-189.99 

40 

10 

15 

94 

6 

165 

190-199.99 

1 

2 

3 

320 

326 

200-209.99 

330 

1 

422 

41 

794 

210-219.99 

2 

15 

17 

220-229.99 

60 

20 

4 

84 

230-239.99 

13 

13 

240-249.99 

134 

7 

458 

599 

250-259.99 

90 

48 

1 

139 

260-269.99 

27 

2 

29 

270-279.99 

432 

4 

5 

441 

280-289.99 

290-299.99 

30-309.99 

16 

11 

27 

310-319.99 

320-329.99 

79 

79 

330-339.99 

340-349.99 

53 

53 

350-359.99 

5 

5 

360-369.99 

370-379.99 

266 

266 

380-389.99 

1 

1 

390-399.99 

11 

11 

400-409.99 

8 

8 

480-489.99 

500-509.99 

Totals 

7723 

5775 

4246 

3196 

4505 

25445 

**Q1 

$  57 

$     53 

S  65 

$  53 

$  64 

$  56 

Median 

96 

65 

103 

80 

103 

91 

Q3 

125 

102 

151 

108 

129 

123 

Q 

34 

25  i        431 

28 

33 

59 

*For  explanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages   lo  and   ii. 

irregularities.  A  study  of  the  median  increases  will  show  that  they 
hover  around  $ioo — ahout  as  many  teachers  receive  less  than 
$ioo  as  receive  more.  Exceptions  to  this  are  Groups  B  and  D  of 
the  geographical  groups ;  and  Group  I  for  intermediate  teachers. 
Group  IV  for  elementary  and  Groups  V  and  Yl  of  the  size  groups  for 
all  teachers.  In  these  groups  the  median  increases  are  lower  than 
$ioo.     The  quartile  deviations   would   indicate  that   the   middle   fifty 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


ii 


TABLE  XVin 

INCRE.'XSES  TO  INTERMEDIATE  TEACHERS'  SALARIES  GRANTED  FOR  1918-19  IN  THB 

392  CITIES  REPORTING. 
(Distributed  according  to  geographical  grouping  and  amount  of  increase  received.)* 


Size  of 

Number  of  teachers  in  each  geographical  group 

Increases 

A 

B 

C 

D 

E 

Totals 

$  0-S  9.99 
10-   19.99 
20-  29.99 
30.   39.99 
40-  49.99 
50-  59.99 
60-  69.99 
70-  79.99 
80-  89.99 
90-  99.99 
100-109.99 

80 

7 

16 

4 

9 

64 

IS 

47 

8 

29 

100 

681 

2 

30 
16 
12 
20 
14 
93 
3 

24 

6 
78 

8 

41 

11 

12 

180 

13 

1 
24 

2 
25 

4 

7 

36 
12 

37 

10 
20 
28 
12 

39 
64 

835 

8 

42 

16 

90 

190 
47 

120 
5i 

209 

359 

110-119.99 
120-129.99 
130-139.99 
140-149.99 
150-159.99 
160-169.99 
170-179.99 
180-189.99 
190-199.99 
200-209.99 

1 
13 
4 

126 

3 
2 

11 

14 

4 
1 
4 
12 
4 

6 

12 

9 
15 

17 

3 
63 
7 
1 
1 
4 
3 
9 
7 
8 

1 

25 
12 

1 
5 
1 

11 

113 

37 

11 

151 

6 

10 

23 

11 

36 

210-219.99 
220-229.99 
230-239.99 
240-249.99 
250-159.99 
260-269.99 
270-279.99 
280-289.99 
290-299.99 
300-309.99 

1 
122 

2 

4 
10 

1 

15 

S 

3 

1 

2 
1 

1 

1 

20 
6 
3 
4 

11 
122 

1 

310-319.99 
320-329.99 
330-339.99 
340-349.99 
350-359.99 
360-369.99 
370-379.99 
380-339.99 
390-399.99 
400-409.99 

1 
1 

10 

1 
1 

10 

**480-4R9.99 
500-509.99 

Totals 

662 

910 

457 

255 

264  1              2549 

**Q1 

Median 
Q3 

$     58 

105 

158 

50 

$       0 

0 

21 

$     68 

103 

109 

21 

$     50 

90 

100 

25 

$     50                 SO 

95                     74 

100                   109 

25                     55 

*For  explanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages   lo  and    ii. 

per  cent  are  ecisily  included  between  $50  and  $150.  The  median 
increases  for  the  groups — $91  lor  elementary,  $74  for  intermediate 
and  $102  for  high  school  teachers  for  the  year  1918-19  are  rather 
condemning  evidence,  that  in  a  great  majority  of  the  cases,  the  in- 
creases were  given  without  regard  to  the  needs  of  the  teachers.  Dur- 
ing   1918    the    cost    of    living   advanst    25%  ^    and    remained    nearly 

1  "Monthly  Review" — Bureau  of  Labor  Statistics — January    1919 — page   100. 


34 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE   XIX 

INCREASES  TO  HIGH  SCHOOL  TEACHERS'    SALARIES  GRANTED  FOR  1918-19  IN  THE 

392  CITIES  REPORTING. 
(Distributed  according  to  geographica'  grouping  and  amount  of  increase  received.)* 


Size  of 

Number  of  teachers  in  each  geographical  group 

Increases 

A 

B 

C 

D 

E 

Totali 

$  0-S  9.99 
10-  19.99 
20-  29.99 
30-  39.99 
40-  49.99 
50-  59.99 
60-  69.99 
70-  79.99 
80-  89.99 
90-  99.99 
100-109.99 

235 

8 

1 

49 

273 
24 

152 
57 
93 

638 

519 

2 

2 

174 

44 

23 

13 

9 

37 

379 

172 

1 

4 

105 

62 

4 

44 

18 

95 

415 

93 

12 

4 

1 

190 

182 

26 

[62 

1  9 

98 

49 

123 

4 

9 

11 

64 

32 

190 

29 

52 

298 

1142 

12 

19 

17 

529 

625 

109 

461 

122 

375 

1779 

110-119.99 
120-129.99 
130-139.99 
140-149.99 
150-159.99 
160-169.99 
170-179.99 
180-189.99 
190-199.99 
200-209.99 

8 

128 

17 

10 

151 

4 

13 

9 

1 

107 

8 
5 

12 
4 
6 
3 
4 

10 
3 
7 

5 
20 
18 

6 
109 

5 
18 
10 

6 
115 

242 

43 

21 

9 

4 

2 

2 

29 

5 

6 

282 

14 

1 

23 

1 

5 

5 

3 

91 

27 

677 

104 

42 

298 

17 

42 

36 

42 

325 

210-219.99 
220-229.99 
230-239.99 
240-249.99 
250-259.99 
260-269.99 
270-279.99 
280-289.99 
290-299.99 
300- '.09.99 

2 
9 

32 
2 
5 

66 

2 
33 

4 
2 
10 
1 
4 
1 
6 
* 
2 

1 
8 
2 

77 
9 

1 
4 
6 
1 
32 

3 
3 

5 
6 
4 
3 
9 
7 
5 

2 
1 
1 
1 

301 

9 

23 
16 

116 
21 
11 
79 
19 
10 

373 

310-319.99 
320-329.99 
330-339.99 
340-349.99 
350-359-99 
360-369.99 
370-379.99 
380-389.99 
390-399.99 
400-409.99 

1 
2 

1 

7 

1 

4 
5 

5 

3 

1 

1 
4 
9 

17 

1 

4 
4 
4 

5 
11 
4 
7 
9 
10 

7 

1 

20 

480-489.99 
500-509.99 

4 

1 

2 

2 

1 
8 

Totals 

2141 

1319 

1410 

1141 

1551 

7562 

**Q1 
Median 
Q3 
Q 

$  58 

104 
129 
36 

$   0 

48 
104 

52 

$  71 

105 

158 

44 

$  49 

81 
129 
40 

$  78 

109 

201 

67 

$53 
102 
127 
37 

*For  explanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  bee  pages   lo  and   ii. 

stationary  during  the  remainder  of  the  school  year.  More  demands 
were  made  upon  teachers'  time  and  resources,  and  yet  more  than  half 
of  them  received  less  than  $ioo  increase  for  the  year. 

One  of  the  effects  of  the  war  on  teaching  was  the  pronuunst  short- 
age of  teachers.  This  was  as  responsible  as  an\'  other  one  element  for 
calling  the  attention  of  educators  to  the  "Emergency  in  Education." 
To  find,  if  possible,  the  effect  of  low  salaries  on  teachers  leaving  was 


lEACHERS'  SALARIES  AND  SALARY  SOHEDL^LES 


35 


TABLE  XX 
SUMMARY  TABLE  OF  THE  NUMBER  OF  TEACHERS  WITHDRAWING    FROM     EACH 
SALARY  LEVEL  DURING  THE  YEAR  1918-19  IN  THE  392  SCHOOL 
SYSTEMS     REPORTING 
(Schoo'   systems  aie  arranged  according  to  the   -ize  of   the  cities.^* 


Salary 

I 

II 

III 

IV 

V 

VI 

Totals 

Groups 

$200-  249 

250-  299 

300-  349 

1 

1 

20 

1 

23 

350-  399 

1 

3 

4 

400-  449 

3 

4 

4 

11 

450-  499 

4 

1 

10 

16 

21 

4 

56 

500-  549 

5 

5 

20 

27 

6 

63 

550-  599 

5 

2 

7 

19 

25 

31 

69 

600-  649 

7 

2 

12 

44 

46 

24 

135 

650-  699 

26 

4 

14 

46 

43 

28 

161 

700-  749 

21 

7 

36 

44 

44 

32 

184 

750-  799 

96 

5 

31 

30 

23 

12 

197 

800-  849 

24 

6 

38 

32 

21 

33 

154 

850-  899 

20 

7 

21 

34 

14 

34 

130 

900  949 

3 

5 

37 

39 

29 

25 

138 

950-  999 

14 

9 

19 

14 

T 

3 

66 

1000-1049 

12 

7 

25 

12 

14 

9 

79 

1050-1099 

17 

1 

32 

11 

2 

6 

69 

1100-1149 

9 

3 

26 

8 

5 

10 

61 

1150-1199 

13 

2 

13 

9 

1 

s 

41 

1200-1249 

4 

6 

20 

11 

3 

2 

46 

1250-1299 

14 

2 

4 

3 

1 

1 

25 

1300-1349 

2 

2 

9 

13 

3 

6 

35 

1350-1399 

11 

4 

3 

2 

3 

23 

1400-1449 

2 

4 

5 

5 

1 

17 

1450-1499 

3 

1 

2 

3 

2 

11 

1500-1 -99 

8 

1 

3 

6 

3 

6 

27 

1600-1699 

5 

2 

10 

5 

22 

1700-1799 

6 

1 

1 

3 

11 

1800-1899 

2 

2 

2 

1 

7 

1900-1999 

2 

2 

1 

5 

2000-2099 

210U  2199 

2200-2299 

1 

1 

2300-2399 

2400-2  i99 

1 

1 

2500-2999 

3000-up 

Totals 

33i 

86 

390 

432 

363 

289 

1892 

**Q1 

$  760 

$  755 

$  765 

$  660 

$  573 

$  647 

$  679 

Median 

811 

940 

923 

851 

695 

817 

808 

Q3 

1096 

1011 

1129 

1123 

846 

908 

1010 

*  For  explanation  of  size  groups  see  page  9. 

**For  explanation  of  terms  used  see  pages   lo  and   ii. 

the  reason  for  asking  the  last  two  questions  of  Part  I  of  the  ques- 
tionnaire to  superintendents.  Only  288  superintendents  of  the  392 
replied  to  these  questions,  but  the  replies  are  evenly  distributed  thru 
the  groups  so  that  the  returns  are  quite  truly  representative  of  the 
cities  involved  in  the  study. 

Tables  XX  and  XXII  show  that  the  salaries  of  teachers  withdraw- 
ing during  the  year  spread  over  nearly  as  wide  a  range  as  was  found 
for  the  distribution  of  the  salaries  received.  This  indicates  that 
teachers  were  drawn  from  all  salary  levels,  which  has  two  probable 
implications ;  one,  that  there  was  need  for  teachers  of  more  ability, 
which  would  draw  the  better  paid  ones,  and  the  second  implication, 
that  even  the  better  paid  salaries  in  teaching  were  still  too  low  to  hold 


36 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XXI 

SUMMARY   TABLE   OF   THE   NUMBER   OF   TEACHERS   WITHDRAWING   FROM    EACH 
SALARY  LEVEL  IN  ORDER  TO  ENTER  SOME  OTHER  FIELD  OF  WORK  DURING 
THE  YEAR  1918-19  IN  THE  392  SCHOOL  SYSTEMS  REPORTING. 
(School  systems  are  arranged  according  to  the  size  of  the  cities.)* 


Salary 

I 

II 

III 

IV 

V 

VI 

Total 

Groups 

$  200-  249 

250-  299 

300-  349 

1 

14 

15 

350-  399 

1 

2 

3 

400  449 

2 

2 

4 

450-  499 

2 

1 

4 

11 

11 

1 

30 

500-  549 

4 

9 

11 

5 

29 

550-  599 

2 

2 

1 

6 

6 

18 

35 

500-  649 

4 

S 

3 

14 

13 

16 

55 

650-  699 

7 

4 

3 

20 

9 

13 

56 

700-  749 

10 

4 

11 

16 

13 

20 

74 

750-  799 

80 

1 

13 

12 

5 

7 

118 

800-  849 

6 

2 

15 

13 

12 

14 

62 

850-  899 

5 

4 

6 

17 

4 

14 

50 

900-  949 

2 

13 

13 

10 

8 

46 

950-  999 

3 

5 

3 

7 

1 

19 

1000-1049 

6 

1 

5 

3 

7 

4 

26 

1050-1099 

9 

10 

4 

1 

3 

27 

1100-1149 

3 

1 

8 

5 

1 

3 

21 

1150-1199 

8 

4 

4 

1 

17 

1200-1249 

1 

6 

6 

2 

15 

1250-1299 

6 

1 

2 

2 

1 

1 

13 

1300-1349 

1 

7 

1 

2 

11 

1350-1399 

1 

3 

1 

1 

1 

7 

1400-1449 

1 

5 

2 

1 

9 

1450-1499 

2 

1 

2 

2 

7 

1500-1599 

1 

2 

3 

1 

1 

8 

1600-1699 

1 

6 

4 

11 

1700-1799 

2 

1 

2 

5 

1800-1899 

1 

1 

1900-1999 

2 

1 

1 

4 

2000-2099 

1 

1 

2100-2199 

2200-2299 

2300-2399 

2400-2499 

2500-2999 

3000-up 

Totals 

164 

40 

128 

182 

128 

137 

779 

**Q 

$  759 

%   630 

$  781 

$  664 

$  523 

$  626 

%   671 

Median 

785 

750 

927 

812 

689 

734 

788 

Q3 

1017 

960 

1144 

989 

850 

874 

1910 

*For  explanation  of  size  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages   lo  and    ii. 

people  of  markt  ability  under  the  keener  competition  which  developt 
during  the  period  of  the  war.  Tables  XXI  and  XXIII  show  the 
importance  of  the  second  cause  mentioned,  since  41  per  cent  of  the\ 
teachers  who  withdrew  from  any  school  system  during  the  year  did 
so  to  enter  some  other  field  of  work.  It  will  be  noticed  in  all  of  these 
distributions  of  teachers  withdrawing  that  the  medians  are  lower 
than  the  corresponding  medians  for  the  same  groups  in  Tables  IV  and 
VIII,  which  give  the  distribution  of  salaries  for  all  teachers  for  the 
same  year. 

The  best  direct  measure  of  the  effect  of  low  salaries  on  teachers 
withdrawing  which  can  be  obtained  from  the  data  assembled  would 
be  to  know  how  many  of  the  teachers  withdrawing  were   from  the 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


37 


TABLE  XXII 

SUMMARY   TABLE  OF   THE   NUMBER  OF  TEACHERS  WITHDRAWING   FROM    EACH 

SALARY  LEVEL  DURING  THE  YEAR  1918-19  IN  THE  392  SCHOOL 

SYSTEMS  REPORTING. 

(School  systems  are  arranged  according  to  geographical  groupings.)* 


Salary 

A 

B 

C 

D 

E     1 

Total 

Groups 

' 

$  200-  249 

250-  299 

300-  349 

5 

18 

23 

350-  399 

1 

3 

4 

400-  449 

4 

5 

2 

11 

450-  499 

10 

29 

IS 

2 

56 

500  549 1^ 

30, 

18 

14 

1 

63 

550-  599  g- 

31 

25 

25 

8 

89 

600-  649  £ 

66 

27 

31 

7 

4 

135 

650-  699  i 

53 

48 

26 

20 

14 

161 

600-  749  5 

63 

22 

42 

18 

39 

184 

750-  799  i 

38 

91 

39 

IS 

14 

197 

800  849 j 

48 

13 

18 

44 

31 

154 

850-  899 

30 

11 

39 

30 

20 

130 

900-  949 

45 

5 

33 

.  26 

29 

138 

950-  999 

22 

5 

8 

11 

20 

66 

1000-1049 

37 

5 

10 

13 

14 

79 

1050-1099 

13 

8 

18 

3 

27 

69 

1100-1149 

24 

2 

9 

5 

21 

61 

1150-1199 

8 

6 

6 

2 

19 

41 

1200-1249 

14 

5 

11 

4 

12 

46 

1250-1299] 

8 

3 

3 

11 

25 

1300-1349 

12 

5 

9 

1 

8 

35 

1350-1399 

3 

3 

4 

13 

23 

1400-1449 

3 

8 

2 

4 

17 

1450-1499 

3 

3 

5 

11 

1500-1599 

5 

1 

2 

1 

18 

27 

1600-1699 

5 

1 

3 

13 

22 

1700-1799 

4 

1 

6 

11 

1800-1899 

2 

2 

3 

7 

1900-1999 

1 

3 

1 

5 

2000-2099 

2100-2199 

2200-2299 

1 

1 

2300-2399 

2400-2499 

1 

1 

2500-2999 

3000-up 

Total 

589 

358 

380 

218 

347 

1892 

**Q1 

$  649 

S  583 

S  669 

S  740 

$  825 

$  679 

Median 

787 

714 

797 

841 

1009 

808 

Q3 

1       978 

970 

919 

932 

1234 

1010 

*For  explanation  of  geographical  groups  see  page  9. 
**For  explanation  of  terms  used  see  pages   lo  and   ii. 

poorer  paid  half  of  the  teachers,  in  other  words,  from  the  teachers 
receiving  below  the  median  salary  in  the  different  groups.  Tables 
XXIV  and  XXV^  give  these  data  for  the  size  groups  and  the  geographi- 
cal groups.  It  will  be  notisl  in  every  group,  whether  for  size  or 
location,  that  50  per  cent  or  more  of  the  teachers  withdrawing  received 
less  than  the  median  salary  for  the  group,  with  an  average  of  66% 
for  all  teachers  studied.  In  other  words,  two  out  of  each  three 
teachers  who  left  teaching  during  this  year  received  less  than  the 
median  salary  of  $917.  When  the  percentages  are  computed  for  those 
who  left  teaching  in  order  to  enter  some  other  line  of  work  tlK>y  run  in 
the  majority  of  cases  a  little  higher  than  the  figures  above,  with  a 


873!)  ;j 


38 


X  ATI  ON  A  L  EDUCATION  ASSOCIATION 


TABLE  XXIII 

SUMMARY  TABLE  OF  THE  NUMBER  OF  TEACHERS  WITHDRAWING  FROM   EACH 

SALARY  LEVEL  IN  ORDER  TO  ENTER  SOME  OTHER  FIELD  OF  WORK  DURING 

THE  YEAR  1918-19  IN  THE  392  SCHOOL  SYSTEMS  REPORTING. 

(Schoo.    systems    are   arranged    according    to    geographical    grouping)* 


Salary 

A 

B 

C 

D 

E 

Total 

Groups 

. 

$  200-  249 

250-  299 

300-  349 

3 

12 

15 

350-  399 

3 

3 

400-  449 

4 

4 

450-  499 

5 

18 

7 

30 

500-  549 

13 

11 

5 

29 

550-  599 

16 

10 

5 

4 

35 

600-  649 

22 

14 

14 

3 

2 

55 

650-  699 

IS 

17 

11 

8 

5 

56 

700-  749 

25 

10 

17 

9 

13 

74 

750-  799 

11 

80 

19 

4 

4 

118 

800-  849 

22 

6 

12 

IS 

7 

62 

850-  899 

11 

5 

11 

14 

9 

50 

900-  949 

9 

2 

11 

13 

11 

46 

950-  999 

10 

4 

1 

4 

19 

1000-1049 

n' 

4 

2 

4 

S 

26 

1050-1099 

6 

3 

9 

1 

8 

27 

1100-1149 

3 

2 

5 

4 

7 

21 

1150-1199 

2 

5 

1 

1 

8 

17 

1200-1249 

4 

3 

1 

2 

S 

15 

1250-1299 

4 

3 

2 

4 

13 

1300-1349 

1 

5 

2 

3 

11 

1350-1399 

1 

3 

3 

7 

1400-1449 

2 

4 

1 

2 

9 

1450-1499 

1 

2 

4 

7 

1500-1599 

1 

1 

1 

S 

8 

1600-1699 

3 

1 

1 

6 

U 

1700-1799 

2 

1 

2 

5 

1800-1899 

1 

1 

1900-1999 

1 

3 

4 

2000-2099 

1 

t 

2100-2199 

2200-2299 

2300-2399 

2400-2499 

2500-2999 

3000-up 

Total 

204 

223 

150 

85 

117 

779 

**Q1 

$  632 

$  559 

$   680 

$   735 

$  838 

$  671 

Median 

714 

758 

793 

848 

1035 

788 

Q3 

955 

793 

903 

926 

1248 

1019 

*For  explanr.tion  of  geographical  groups  see  page  19. 
**For  explanation  of  terms  used  see  pages   lo  and   ii. 

percentage  for  the  total  of  70%.  This  is  rather  conclusive  evidence 
that  the  lack  of  adequate  financial  reward  was  one  of  the  principal 
reasons  for  teachers  leaving  the  profession.  This  question  will  be 
further  discust  in  connection  with  the  cost  of  living  and  teachers' 
salaries.  The  fact  that  the  salaries  of  teachers  are  not  high  enough  to 
offer  anything  of  a  career  to  ambitious  men  and  women  is  undoubtedly 
one  reason  why  teaching  was  one  of  the  first  occupations  to  suffer  a 
threatening  shortage  under  the  increast  demands  for  trained  intel- 
ligence incident  to  the  war. 

PART  II  OF  QUESTIONNAIRE  TO  SUPERINTENDENTS 

The  primary  purpose  of  asking  the  questions  contained  in  Part  IT 
of  the  questionnaire  to  superintendents   for  elementary,  intermediate 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


30 


TABLE  XXIV 
TEACHERS  LEAVING'    AND  "TEACHSRS  LE  WING  FOR  OTHER  KIELDS   OF  WORK" 
DURING  1918-19  COMPARED   WITH   TH3   M'<;DI\N  SAL\RY0F  EACH  SIZE  GROUP  OF 
CITIES  FOR  ALLTEACHSR^CELEMSNfrAR/.  IN  TERMSDIATE  AND  HIGH  SCHOOL).* 


Size  Groups 


No.  of  teacher   in  each  group 

Median  salary  o"  all  teachers 

in  each  group |     $1013 

No.  of  teachers  leaving  each 
group  during  1918-19** 

Median  salary  o  teacher?  leav 
ing  during  1918 

No.  o"  teachers  leaving  each 
group  during  1918-19  to 
enter  other  work 

Median  salary  of  teachers 
entering  other  work  during 
1918-19 

Per  cent  of  teachers  leaving 
who  received  less  than  me- 
dian salary  of  group 

Per    cent    of  teachers  entering 

ther  work  who  received  less 

than  median  salary  of  group 


I 

n 

III 

17461 

4667 

7744 

$1013 

S943 

$  28 

1    ^33 

86 

390 

$811 

$940 

$923 

164 

40 

128 

$785 

$750 

$27 

67% 

50% 

51% 

75% 

72% 

51% 

6812 

$814 

432 

$795 

182 

$812 

57% 

54% 


3446 

$750 

363 

$695 

128 

$689 

63% 

61% 


VI 


3545 

$741 

289 

$817 

137 
$734 
44% 
56% 


Total 


43675 
$917 
1892 
$808 

779 

$788 

66% 

70% 


*For  explanation  of  size  groups  see  page  9. 
**These  figures  include  only  the  returns  from  the  288  cities  answering  this  question. 

TABLE  XXV 
•TEACHERS  LEAVING"  AND  "TEACHERS  LE.AVING  FOR  OTHER  FIELDS  OF  WORK' 
DURING  1918-19  COMPARED  WITH  THE  MEDIAN  SALARY  OF  EACH  GEOGRAPH- 
ICAL GROUP  OF  CITIES  FOR  ALL  TEACHERS  (ELEMENTARY.  INTER- 
MEDIATE AND   HIGH  SCHOOL*). 


Geograaphicai  Groups 


No.  of  teachers  in  each  group .... 
Median  salary  for  all  teachers  in 

each  group 

No.  of  teachers  leaving  each  group 

during  1918-19** 

Median  salary  of  teachers  leaving 

during  1918-19 

No.  of  teachers  leaving  each  group 

during    1918-19    to   enter   other 

work 

Median  salary  o    teachers  entering 

other  work  during  1918- 19 

Per  cent  o     teachers  leaving  who 

received  less  than  median  salary 

of  group 

Per  cent  of  teachers  entering  other 

work    who    received     less    than 

median  salary  of  group 


$869 


S714 


66% 


8825 
$794 

358 
$714 

223 

$758 

77% 
76% 


6959 

$871 

380 

$797 

150 
$792 

60%, 

63% 


D 


7801 

$1015 

218 

$841 

85 
$848 

86% 

«4% 


7143 

$1187 

347 

$1009 

117 
$1035 

66% 

69% 


Total 


43675 
$917 
1892 
$80S 

779 
$788 

66% 

70% 


♦For  explanation  of  geographical  groups  see  page  9. 
**These  figures    nclude  only  the  returns  from  the  288  cities  answering  this  question. 

and  high  schools  was  to  find  the  present  condition  of  salary  schedules 
for  teachers  in  the  cities  of  the  United  States,  to  find  the  living  ex- 
penses as  far  as  they  could  be  judged  by  the  one  item  of  "board  and 
room,"  and  also  to  find  the  professional  requirements  demanded  of 
teachers  for  election  in  the  different  school  systems.  The  questions 
were  askt  in  duplicate  for  each  of  the  three  divisions ;  Set  A  for 
elementary  schools.  Set  B  for  intermediate  schools,  and  Set  C  for 
high  schools,  in  order  to  adjust  the  blank  to  superintendents  who  had 
to  report  on  one  or  more  of  these  divisions,  as  well  as  to  provide  for  an 
easy  method  of  making  distinctions  between  any  two  divisions.     The 


40 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XXVI 

NUMBER  OF  MONTHS  TN  THE  SCHOOL  YEAR  OF  1918-19 
FOR  ELEMENTARY  SCHOOLS   IN  3S6  CITIES  REPORTING 
(Distributed  according  to  number  of  months  and  s'ze  of  city  )* 


Number  of  cifes  in  each  sire  group. 

Length  of  year 
in  months 

I 

II 

III 

IV 

V 

VI 

Total 

10 
9 

8 

7K 

14 

1 
2 

17 
2 

7 

18 

112 

13 

35 
14 

383 

1 

231 
10 
431 

3 

1 

1 

49 
9 

683 
3 
3 

156 
47 

171 
6 
5 
1 

Totals 

17 

26 

42 

88 

81 

132 

386 

%  having  10  months 
%  having  9K  months 
%  having  9  months 
%  having  less  than  9 

82 
6 

12 
0 

65 
8 

27 
0 

43 

26 

31 

0 

40 

16 

43 

1 

28 

12 

53 

6 

37 
7 

52 
5 

40 

12 

44 

3 

*  For^explanation  of  size  groups'see  page  9. 

*  One'city  reportedjll  months. 

2  One  city   reported  9H   months. 
'  One  city  reported  9%  months. 

*  Three  cities  reported  914  months 

Note: — Number  of  months  reported  for  Intermediate  Schools  and  High  Schools  were  in  almost  all  cases 
identical  with  the  above 

questions  have  been  tabulated  separately,  except  Questions  i,  6  and  7, 
where  the  answers  were  practically  uniform  for  the  different  divisions. 
Each  question  as  it  pertains  to  the  different  divisions  will  be  dis- 
cust  in  order  thru  the  remainder  of  this  chapter. 

Question  i. — "How  many  months  are  these  schools  in  session?" 
Table  XXVI  shows  the  number  of  months  in  the  school  year  for  the 
different  cities.  It  is  very  gratifying  to  note  that  40  per  cent  of  the 
schools  reporting  remain  in  session  for  ten  months,  and  that  52  per 
cent  of  the  schools  remain  in  session  for  longer  than  nine  months. 
The  percentage  of  schools  reporting  ten  months  of  school  decreases 
very  rapidly  as  the  size  of  the  cities  decreases,  so  that  where  we  find 
82%  for  cities  in  Group  I  it  is  as  low  as  28%  in  cities  of  Group  V. 
On  thci  other  hand,  the  percentages  of  cities  having  nine  months  of 
school  increases  as  the  size  of  the  cities  decreases,  so  that  12  per  cent  of 
the  cities  in  Class  I  increases  to  53  per  cent  in  Group  V.  The  3  per 
cent  of  all  the  386  cities  reporting  less  than  nine  months  of  school  is  a 
further  source  of  gratification.  It  is  evident  from  this  table  that  the 
length  of  school  year  is  rapidly  approaching  ten  months  as  a  standard. 
State  Superintendent  W.  F.  Bond  of  Mississippi,  states  that  "There  is 
a  tendency  to  put  all  such  teachers  on  a  twelve  months'  salary  basis, 
giving  them  30  days  off  during  the  year,  and  employing  them  for  half 
time  during  the  rest  of  the  time  the  school  is  not  in  session  to  coach 
all  those  students  that  fail  to  pass  the  last  session  of  work."  On  the 
other  hand,  some  of  the  states  are  just  passing  laws  making  six  months 
the  minimum  length  of  term,  so  that  there  is  yet  room  for  material 
i.mprovement  in  this  respect  thruout  the  country. 


lEACHERS'  SALARIES  A.\D  SALARY  SCHEDLLES 


41 


TABLE  XXVII 
NUMBER  OF  CITIES  HAVING   ESTABLISHT  SALARY  SCHEDULES   KOR   ELEMENTAKN 
TEACHERS    IN    THE    365    CITIES    REPORTING 
(Distributed  according  to  size  of  cit  es.)* 


Number  of  cities  ir  each  size  group 

I                    1 

III 

IV 

V 

V! 

Total 

Have             establisht 
salary  sched.le. .  .  . 

Have      a      "partial'" 
salary  schedule   .  . . 

Have     no     establisht 
schedule 

i9 

14' 

3.S 
4 

692 
18 

433 

1 
331' 

3 
67» 

237 

4 
1J4 

Totals .  .  . 

19 

6 

39 

87 

77 

127 

365 

%  having  an  estab- 
lished schedule.  .  .  . 

100% 

88% 

90% 

79% 

56% 

45% 

65% 

*  For  explanation  of  size  groups  see  page  9. 

'  One  city  reports  it;  schedule  as  "obsolete   . 

2  Two  cities  reporc  theii  schedules  as  "obsolete". 

3  Two  cities  report  their  schedules  as  "obsolete",  one  as  "subject  to  change"  and  one  as  "going  into 
effect  for  1919-20." 

•  Four  cities  report  their  schedules  as  "obsolete,"  two  as  "the  state  minimum  '  one  as  the  "State 
law  -t-  25%, "  and  one  as  "State  law  +  10%." 

'  One  city  reports  "irregular  increase — no  schedule." 

TABLE   XXVIII 

NUMBER  OF  CITIES  HAVING  ESTABLISHT  SALARY  SCHEDULES  FOR  INTERMEDIATE 

TEACHERS    IN    THE    184    CITIES    REPORTING 

(Distributed  according  to  size  of  cities.)* 


Number  of  cities  in  each  size  group 

I 

II 

III 

IV 

V 

VI 

Total 

Have  an  establisht 
salary  schedule. . .  . 

Have  a  "partial" 
salary  schedule.  .  .  . 

Have  no  establisht 
salary  schedule. . .  . 

10 

6 
1 

12 
4 

27 
12 

27 
24 

30 
31 

112 
72 

Totals .  . . 

10 

7 

16 

39 

SI 

61 

184 

%    having   establisht 

100% 

86% 

75% 

78% 

53% 

49% 

61% 

*For  exjilanalion  of  size  groups  see  page  9. 

Question  2. — "Do  you  have  an  establisht  salary  schedule  for  ele- 
mentary school  teachers  ?" 

Tables  XXVII,  XXVIII  and  XXIX  give  the  answers  to  this  ques- 
tion from  365  of  the  superintendents  who  answered  it.  It  will  be 
observed  that  65  per  cent  of  the  cities  have  schedules  for  elementary 
teachers,  61  per  cent  for  intermediate,  and  47  per  cent  for  high  school, 
which  would  seem  to  indicate  a  tendency  to  establish  schedules  for 
elementary  teachers,  more  than  for  teachers  in  the  other  two  divisions. 
In  these  tables  it  is  obvious  that  the  size  of  the  city  is  a  large  deter- 
mining factor  in  whether  or  not  they  have  establisht  schedules.  All 
the  cities  of  Group  I  have  schedules  in  all  three  divisions,  and  the 
percentage  of  cities  having  establisht  schedules  decreases  rather  uni- 
formly as  the  size  of  the  city  decreases.  This  is  most  noticeable  in 
the  lack  of  schedules  for  high  school  teachers  in  cities  of  Groups 
V  and  VI.     Cities  in  Group  I\\  which  includes  those  having  between 


42 


XATIOA'AL  tDUCAl'lON  ASSOCIATION 


TABLE    XXIX 
NUMBER  OF  CITIES  HAVING  ESTABLISHT  SALARY  SCHEDULES  FOR  HIGH  SCHOOL 
TEACHERS    IN    THE    337    CITIES    REPORTING 
(Distributed  according  to  size  of  cities.)* 


Number   of   cities 

in   each   size  group. 

I 

II 

III 

IV 

\' 

VI 

Total 

Have  an  establisht 
salary  schedule. . . . 

Have  a  "partial" 
salary  schedule. . . . 

Have  no  establisht 
salary  schedule. . . . 

18 

11 

5 

31 
8 

38 
42 

28 
43 

31 

82 

157 
180 

Totals .  .  . 

18 

16 

39 

80 

71 

113 

337 

%    having   establisht 

100% 

69% 

80% 

48% 

39% 

38 

47% 

*For  explanation  of  size  groups  see  page  9. 

TABLE    XXX 
MINIMAL  SALARIES  FOR  ELEMENTARY  TEACHERS  IN  352  CITIES  REPORTING 
(Distributed  according  to  salary  received  and  size  of  cities.)* 


Number  of  cities 

in  each  size 

group. 

Minimal  salary 

I 

II 

III 

IV 

V 

VI 

Totals 

$250-$  299 

12 

22 

3 

300-  349 

11 

1 

350-  399 

2' 

1 

3 

2 

8 

400-  449 

12 

2 

1 

2 

2 

8 

450-  499 

3                     3 

95 

15 

16 

46 

500-  549 

3 

3 

15 

9 

10 

40 

550-  599 

21 

1 

4 

14 

14 

19 

54 

600-  649 

2 

2 

8 

13 

134 

21 

59 

650-  699 

1 

3 

5 

8 

5 

10 

32 

700-   749 

4 

1 

84 

/ 

8 

13 

41 

750-   799 

3 

1 

1 

4 

2 

5 

16 

800-  849 

3 

1 

3 

2 

3 

4 

16 

850-  899 

1 

3 

7 

5 

11 

900-  949 

1 

t 

2 

7 

1 

y 

15 

950-  999 

1 

1 

1000-1049 

1050-1099 

1100-1149 

1150-1199 

1 

1 

Totals 

19 

18 

44 

83 

77 

111 

352 

Median 

$  731 

$  600 

S  650 

$  610 

$  570 

$  613 

$     614 

%  below  800 

74% 

89% 

82% 

86% 

95% 

89% 

88% 

%  below  500 

11% 

28% 

16% 

12% 

29% 

18% 

19% 

•For  explanation  of  size  groups  see  page  9. 

'  For  no  experience;     '  colored;     ^  2  year  apprentice;     *  with  experience;     '  and  bonus; 
paid  same  salary. 


«  all 


10,000  and  25,000  population,  have  almost  as  large  a  percentage  with 
salary  schedules  as  the  groups  of  larger  cities.  The  big  drop  in  per- 
centage between  Groups  IV"  and  V  would  seem  to  indicate  that  cities 
below  10,000  population  have  not  yet  found  it  as  expedient  to  establish 
salary  schedules  as  the  larger  cities.  Competition  for  teachers,  regard- 
less of  any  set  salary  schedule,  and  particularly  of  a  schedule  of  low 
salaries,  is,  in  a  great  many  cases,  the  determining  factor  in  the  election 
of  teachers  in  the  smaller  cities.  This  will  probably  continue  until  a 
more  adequate  adjustment  of  salaries  can  be  made  between  cities  of 


lEACHERS'  SALARIES  A\D  SALARY  SCHEDLLES 


4.> 


TABLE  XXXI 

MINIMAL   SALARIES   FOR    INTERMEDIATE   TEACHERS    IN    169   CITIES     REPORTING 

(Distributed  according  to  salary  received  and  size  of  cities.)* 


Number  of  cities  in  each  size 

group 

Minimal 

Salary 

I 

II 

III 

IV 

V 

VI 

Total 

$  250-  299 

1 

1 

300-  349 

1 

1 

2 

350-  399 

1 

1 

400-  449 

1 

I 

450-  499 

1 

2 

4 

6 

13 

500-  549 

3 

10 

1 

14 

550-  599 

2 

4 

2 

8 

600-  649 

2 

2 

3 

12 

19 

650-   699 

1 

2 

1 

2 

6 

4 

16 

700-  749 

1 

1 

21 

4 

10 

9 

27 

750-   799 

2 

2 

1 

4 

2 

11 

800-  849 

2 

3 

6 

2 

5 

18 

850-  899 

2 

2 

4 

4 

12 

900-  949 

3 

3 

3 

2 

11 

950-  999 

2 

3 

1 

6 

1000-1049 

1 

1 

1 

3 

1050-1099 

1 

1 

2 

1100-1149 

22 

1 

3 

1150-1199 

1 

1 

Totals 

9 

6 

20 

35 

49 

50 

169 

Median 

$  788 

$  800 

$  800 

$  813 

$  663 

$  700 

$  718 

%  below  800 

55% 

50% 

50% 

46% 

88% 

72% 

67% 

%  below  500 

11% 

0% 

15% 

6% 

12% 

12% 

11% 

•  For  explanation  of  size  groups  see  page  9. 
'  Women;     '  Men. 

dilifercnt  sizes,  adjusting  the  salary  to  the  dift'erence   in  the  cost  of 
living  and  the  opportunities  for  advancement  afforded. 

A  number  of  the  superintendents  in  answering  Question  2  made  note 
of  the  fact  that  salary  schedules  represent  changeable  standards,  and 
that  they  were  conscious  of  the  fact  that  schedules  establisht  several 
years  ago  are  at  the  present  time  "obsolete."  A  number  also  stated 
that  revisions  of  schedules  were  under  consideration  at  the  present 
time,  so  that  it  is  quite  likely  that  the  working  schedules  for  1919-20 
will  be  materially  higher  than  for  the  present  year. 

Question  3. — "What  is  the  minimal  salary  for  elementary  teachers?" 
Tables  XXX,  XXXI  and  XXXII  give  the  distribution  of  the  answers 
to  this  question  for  elementary,  intermediate  and  high  school  teachers. 
In  the  establishment  of  the  minimal  salaries,  it  is  noticeable  that  the 
size  of  the  city  does  not  have  the  effect  that  it  has  had  on  most  of  the 
other  facts  considered.  Especially  is  this  true  in  the  elementary 
and  intermediate  sections.  The  range  of  minimal  salaries  is,  as  would 
be  expected,  much  less  than  the  range  of  salaries  for  the  respective 
groups.  There  is,  however,  a  very  wide  variation  in  this  respect,  since 
some  cities  have  minimal  salaries  of  $250  for  elementary  teachers, 
while  one  of  the  cities  reporting  started  its  teachers  at  $1,150.  The 
range  is  as  great  for  intermediate  teachers,  and  is  $150  more  for  high 
school  teachers.  This  item  is  very  noticeable  when  it  is  possible  for 
a  beginning  high  school  teacher  to  enter  one  school  system  at  $450  a 


44 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XXXII 
MINIMAL  SALARIES  FOR  HIGH  SCHOOL  TEACHERS  IN  333  CITIES  REPORTING. 
(Distributed  according  to  salary  received  and  size  of  cities.)* 


Number  of  cities  in  each  size  group 

Minimal  Salary 

I 

II 

III 

IV 

V 

VI 

Totals 

$  450-$499 
500-  549 
550-  599 

1 
1 

1 
1 

1 
2 

1 
3 
3 

600-  649 

c 
1 

1 

a 
3 

3 

8 

16 

*      650-  699 
700-  749 

a 
1 

d 
2 

a 

1 
a 
2 

2 
1 

5 
o 
10 

8 
12 

6 
19 

23 
46 

750-  799 
800-  849 

850-  899 

a 
1 

1 

aa 
2 

1 

6 

1 

a 
6 

6 
5 

a 
4 

11 

13 

1 

a 
10 
ab 
14 

8 

10 

13 
14 

40 

47 
28 

900-  949 

1 

a 
3 

7 

aaaa 
14 
b 
2 

bb 
7 

7 

9 

41 

950-  999 
1000-1049 

aabd 
8 

bb 
5 

6 
1 

6 
2 

1 

4 

b 
4 

2 

3 
5 

11 
29 

1050-1099 

1100-1149 
1150-1199 

1200-1249 

1 

2 

ab 
5 

b 
1 

b 
1 

b 
1 

2 
1 

b 
2 

b 
3 

4 

1 

b 
3 

1 
3 

2 

11 
1 

18 

1250-1299 

1 

2 

1300-134?) 
1350-1399 
1400-1499 
1450-1499 

1500-1599 

1 

3 

2 

b 
1 

1 

1 

6 
1 

1 

3 

Totals 

26 

20 

44 

77 

71 

95 

333 

Median 

%  below  1000 

%  below    800 

$1038 

27% 
19% 

$975 
50% 

25% 

$921 

73% 
27% 

$837 
76% 
38% 

$802 
93% 

49% 

$806 
90% 

48% 

$837 

78% 
40% 

*For  explanation  of  size  groups  see  page  9. 

a.  women;  b.  men;  c.  colored;  d  girls'  high  school. 

Letters  are  repeated  as  many  times  as  there  are  cities  to  which  the  condition  refers. 

year,  while  the  same  teacher  would  receive  $1,500,  should  she  start 
work  in  another  city.  When  we  consider  the  percentage  of  cities  with 
minimal  salaries  below  $500,  we  find  19  per  cent  for  elementary 
teachers  and  11  per  cent  for  intermediate  teachers.  About  one  in 
every  five  cities  with  salary  schedules  starts  its  teachers  at  less  than 
$500  per  year.  This  is  equivalent  to  only  $41  per  month  on  the  twelve 
month  basis,  or  $1.39  per  living  day.  When  these  figures  are  compared 
with  the  wages  paid  workers  in  any  other  occupations,  the  oft-quoted 
expression  "A  starvation  wage  for  beginners"  takes  on  a  real  meaning. 
In  the  light  of  the  campaign  to  establish  $1,000  and  even  $1,200  as 
the  minimal  salary  for  every  American  teacher,  the  88  per  cent  of 
cities  who  have  a  minimal  salary  for  elementary  teachers  below  $800 
shows  the  urgency  of  the  salary  situation  in  the  cities  of  this  country. 
Only  one  of  the  352  cities  reporting  minimal  salaries  for  elementary 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


45 


teachers  pays  a  minimum  of  over  $i,ooo,  less  than  three-fourths  of 
one  per  cent.  The  situation  is  very  little  better  for  intermediate 
teachers.  The  better  salaries  paid  to  high  school  teachers  is  evidenst 
in  the  minimal  salaries  establisht,  as  well  as  in  all  other  tabulations. 
The  additional  preparation  amounting  to  more  than  two  years  in  most 
cases,  received  some  recognition  when  we  realize  that  40  per  cent 
of  the  cities  report  minimal  salaries  for  high  school  teachers,  of  less 
than  $800,  compared  to  the  88  per  cent  reporting  minimal  salaries 
for  elementary  teachers  below  that  figure.  Seventy-eight  per  cent  of 
the  minimal  salaries  for  high  school  teachers  is  below  $1,000,  which 
is  the  lowest  proposed  minimum  for  all  teachers.  Over  three- fourths, 
then,  of  the  high  schools  fall  short  of  this  standard.  A  study  of  these 
tables  makes  evident  one  of  the  reasons  why  capable  young  men  and 
young  women  do  not  choose  to  enter  the  teaching  profession,  and  fur- 
nishes an  argument  of  weight  for  the  establishment  of  a  minimal 
salary,  high  enough  to  ofTer  inducements  nearer  than  ten  years  in  the 
future. 

Question  4. — "What  is  the  maximum  for  elementary  teachers?" 
Fewer  superintendents,  as  will  be  shown  by  the  totals  in  Tables 
XXXIII,  XXXIV  and  XXXV  gave  maximal  salaries  for  teachers  in 

TABLE  XXXIII 
MAXIMAL  SALARIES  FOR  ELEMENTARY  TEACHERS  IN  334  CITIES  REPORTING 
(Distributed  according  to  salary  received  and  size  of  cities.)* 


Number   of    cities    in    each 

size    group 

Maximal 

Salary 

I 

II 

III 

IV 

V 

VI 

Totals 

$  400-S449 

V 

1 

450-  499 

1 

1 

2 

500-  549 

1 

3 

4 

550-  599 

1 

3 

4 

600-  649 

2 

4 

5 

7 

18 

650-  699 

1 

8 

5 

15 

29 

700-   749 

1 

10 

9 

13 

33 

750-   799 

4 

10 

17 

31 

800-  849 

11 

6 

9 

12 

10 

38 

850-  899 

2 

3 

7 

4 

5 

21 

900-  949 

3 

6 

12 

9 

7 

40 

950-  999 

3 

7 

3 

1 

15 

1000-1049 

3 

5 

3 

6 

3 

8 

28 

1050-1099 

3 

6 

2 

1 

4 

16 

1100-1149 

3 

5 

2 

4 

15 

1150-1199 

2 

1 

1 

5 

1200-1249 

3 

3 

2 

1 

I 

12 

1250-1299 

1 

2 

2 

1 

6 

1300-1349 

1 

1 

5 

1350-1399 

1 

1 

3 

1400-1449 

1 

1 

1450-1499 

1 

1 

1500-1599 

2 

1 

1 

4 

1600-1699 

1 

1 

1700-1799 

1800-1899 

1 

1 

Totals 

21 

17 

42 

85 

70 

99 

334 

Median 

S1125 

S1045 

$1000 

$  896 

$  800 

S  781 

$  867 

%  below  1000 

3,i% 

24% 

50% 

73% 

90% 

78% 

71% 

%  below  800 

0% 

6% 

7% 

32% 

50% 

57% 

37% 

*For  explanation  of  size  groups  see  page  9. 
'Colored. 


46 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE;  XXXIV 
MAXIMAL  SALARIES  FOR  INTERMEDIATE  TEACHERS  IN  161  CITIES  REPORTING 
(Distributed  according  to  salary  received  and  size  of  cities.)* 


Nu 

mber    of    ci 

■es    in    eac 

^1    size    grouD 

Maximal 

Salary 

I 

II 

III 

IV 

\- 

VI 

Totals 

$400-$449 

11 

1 

450-  499 

500-  549 

1 

1 

550-  599 

600-  649 

1 

4 

1 

6 

650-  699 

4 

3 

3 

10 

700-  749 

1 

4 

3 

5 

13 

750-   799 

1 

3 

8 

12 

800-  849 

1 

8 

11 

20 

850    899 

1 

1 

4 

1 

7 

900-  949 

1 

3 

8 

1 

13 

950-  999 

1 

1 

1 

1 

4 

1000-1049 

3 

3 

3 

9 

1050-1099 

1 

1 

4 

1 

2 

9 

1100-1149 

1 

1' 

2 

4 

3 

11 

1150-1199 

! 

1 

1 

1 

4 

1200-1249 

1 

1 

3 

2 

1 

2 

10 

1250-1299 

1 

2 

1 

4 

1300-1349 

2 

2 

2 

1 

1 

8 

1350-1399 

1 

1 

1 

3 

1400-1449 

1 

1 

2 

1450-1499 

1 

1 

1500-1599 

1 

3' 

2 

1 

7 

1600-1699 

1 

1 

I 

3 

1700-1799 

V 

1 

1800-1899 

12 

1 

2300 

1 

1 

Totals 

9 

7 

21 

34 

47 

43 

161 

Median 

$1338 

$1225 

S1263 

$1033 

$  856 

$  820 

$  933 

%  below  1000 

11% 

14% 

19% 

44% 

77% 

70% 

54% 

%  below  800 

0%. 

0% 

10% 

26% 

32% 

40% 

27% 

*For  explanation  of  size  groups  see  page  18. 
'Women;     »  Men;     *  Colored. 

the  different  divisions.  This  can  be  taken  as  a  fairly  safe  indication 
that  there  is  a  more  pronounst  tendency  to  establish  minimal  salaries 
than  maximal.  The  maximal  salaries  for  elementary  teachers  show 
a  condition  almost  as  deplorable  as  that  revealed  in  the  tabulations  for 
minimal  salaries.  The  median  maximal  salaries  for  the  334  cities 
reporting  such  salaries  is  only  $867.  This  means  that  in  half  of  the 
cities  in  the  country,  as  represented  by  these  334,  a  teacher  in  the 
elementary  grade  cannot  look  forward  to  a  salary  of  more  than  $867 
per  year,  no  matter  how  good  her  work  or  how  long  her  experience. 
Thirty-seven  per  cent  of  these  cities  report  a  maximum  below  $800, 
while  71  per  cent  report  maximal  salaries  below  $1,000,  the  lower  of 
th?  proposed  minimal  salaries  for  all  teachers.  Practically  three- 
fourths  of  the  cities  have  maximal  salaries  at  the  present  time  belov/ 
this  proposed  minimum.  The  conditions  are  slightly  better  for  the 
intermediate  teachers  as  they  were  also  found  to  be  in  the  study  of 
the  minima]  salaries.  But.  even  with  these  more  successful  and  better 
prepared  teachers,  27  per  cent  of  the  cities  set  maximal  salaries  below 
$800,  and  54  per  cent  below  $1,000.  The  maximal  salaries  for  high 
school  teachers  are  considerablv  higher  than  those  for  either  the  ele- 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


47 


TABLE  XXXV 
MAXIMAL  SALARIES  FOR  HIGH  SCHOOL  TEACHERS  IN  326  CITIES  REPORTING. 
(Distributed  according  to  salary  received  and  size  of  cities.)* 


Number  of  cities  in  each 

size  group 

Maximal  Salary 

I 

11 

III 

IV 

V 

VI 

Total 

$  650-  699 

1 

1 

700-  749 

1 

1 

750-  799 

1 

1 

800-  849 

1 

1 

3 

1 

6 

850-  899 

c 

a 

1 

4 

5 

900-  949 

1 

1 

3 

7 

18 

30 

950-  999 

a 

2 
a 

4 

9 

15 

1000-1049 

1 

3 

6 

6 

16 

1050-1099 

2 
aa 

1 
a 

7 

10 

1100-1149 

a 

3 

2 
a 

9 

8 

22 

1150-1199 

1 

d 

2 

4 
a 

1 

8 

1200-1249 

1 

1 

3 

7 

5 
a 

S 
a 

22 

1250-1299 

1 

1 
aa 

3 
a 

3 

3 

11 

1300-1349 

a 

1 
aa 

3 

4 

1 

3 

12 

1350-1399 

2 

2 
a 

2 
b 

2 
aa 

4 

4 

16 

1400-1449 

1 

2 

2 

5 

3 

1 

14 

1450-1499 

2 

2 

a 

aag 

6 

ft 

1500-1599 

2 

1 

6 

15 

9 

7 

40 

6 

aab 

ft 

ft 

1600-1699 

3 

3 

b 

13 
b 

8 
b 

2 

4 

33 

1700-1799 

2 

2 

2 

9 

2 

17 

aae 

b 

bb 

cbbfg 

1800-1899 

6 

1 
b 

3 

6 

6 

1 

2 

19 

1900-1999 

b 

1 
b 

1 

1 

1 

4 

2000-2099 

3 

2 

2 

3 

10 

2100-2199 

6 

1 

1 

1 

2200-2299 

b 

1 

1 

2 

2300-2399 

1 

2 

2400-2499 

1 

b 
2 

1 

2500-2599 

1 

3 

2  700-2799 

1 

1 

3000-3099 

1 

1 

Total 

26 

20 

48 

81 

65 

86 

326 

Median 

$1800 

$1666 

$1583 

$1523 

$1181 

$1078 

$1358 

%  below  1500 

23% 

35% 

40% 

46  %o 

77% 

85% 

59% 

%  below  1000 

4% 

0% 

4% 

7% 

23% 

41% 

15% 

*For  explanation  of  size  groups  see  page  9. 

a.  women;  ft.  men;  c.  colored;  d.  girls'  high  school;  e.  boys'  high  school;/,  college  graduates;  e-  single 
men;  h.  married  men. 

Letters  are  repeated  as  many  times  as  there  are  cities  to  which  the  condition  refers. 

mentary  or  intermediate,  and  are  spread  over  a  much  wider  range. 
The  median  maximum  for  high  school  teachers  is  $1,358,  while  15  per 
cent  of  the  cities  set  the  high  school  maximum  below  $1,000,  forty-two 
per  cent  below  $1,200,  and  59  per  cent  below  $1,500.  In  all  three 
divisions  it  is  noticeable  that  the  size  of  the  city  has  a  decided  effect 
upon  the  maximal  salary  set.  since  the  median  salary  diminishes  regu- 
larly with  the  decrease  in  city  size. 

When  we  consider  the  very  low   entering  wage   for  high  school 


48 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XXXVI 

ANNUAL  INCREASE  GRANTED  TO  ELEMENTARY  TEACHERS 

IN  ?,3:i  CITIES  REPORTING 

Distributed  according  to  increases  granted  as  reported  by  city  superintendent  and  size  of  the  cities  )* 


Annual  Increase 

Number  of  cities  in  each  size  group 

where  stated  as 
a  definite  amount 

I                    II 

III 

IV 

V 

VI 

Total 

$   18 

20 

22K 

25 

30 

35 

40 

45 

47K 

50 

60 

62K 

75 

85 

90 
100 
120 
150 
175 

1 

1 
1 
6 
I 

1 
2 

2 
1 

5 

1 

1 

5 

3 
1 

11 
6 

1 

1 

1 

I 
2 

10 
3 

22 
1 

1 
1 

1 
1 

2 
2 
1 

1 

12 

2 

12 

1 

1 

2 

1 

1 
1 
5 
4 

1 

12 

1 

21 

1 

1 
1 
2 

1 

2 
1 

10 

17 
3 
1 
5 

38 
8 

77 
9 
1 
4 
1 
3 
8 
1 
1 
1 

No    definite    in- 
crease   

Varying  and  com- 
bination         in- 
creases (a) 

5 

1 
6 

8 

5 
26 

12 
23 

29 
27 

47 
95 

Total 

IS 

16 

37 

82 

72 

108 

:Mi 

*For  explanation  of  the  size  groups  see  page  9. 

(a)  In  this  group  ten  cities  reported  increases  of  S22.50-$45;  seven  cities  reported  S2S-$50;  five  cities 
$45-$90;  eight  cities  S50-$100;  four  cities  S10%;  and  sixty-four  other  cities  reported  various  increases 
such  as  $25-$29,  on  $45  every  2  years   etc. 

teachers  in  connection  with  the  time  spent  in  meeting  the  preparation 
requirements  for  high  school  teachers  and  the  present  day  cost  of 
such  an  education,  there  is  a  httle  wonder  that  more  competent  teachers 
do  not  enter  the  high  school  field  when  the  median  maximal  salary 
for  half  of  the  cities  is  below  $1,358.  This  lack  of  financial  incentive 
to  continuance  in  the  teaching  profession  is  felt  in  all  three  divisions. 
It  is  one  of  the  lines  of  reform  aloYig  which  much  progress  must  be 
made  within  the  next  few  years  in  order  to  maintain  even  the  present 
standard  of  efficiency  in  our  schools,  to  say  nothing  of  an  increast 
efficiency  which  the  enlarged  demands  upon  the  school  of  the  present 
critical  period  of  reconstruction  have  made. 

Question  5. — "What  is  the  annual  increase  for  elementary  teachers  ?'' 
The  answers  to  this  question  for  elementary,  intermediate  and  high 
schools  are  given  in  Tables  XXXVI,  XXXVII,  and  XXXVIII.  The 
returns  as  they  were  given  on  the  superintendents'  blanks  showed  wide 
variation.  An  attempt  v/as  made  to  group  them  into  as  few  groups  as 
possible,  but  in  each  division  there  remained  a  relatively  large  group  of 
increases  in  varying  combinations,  too  numerous  to  tabulate.  Some 
typical  instances  are  given  in  the  foot  notes  on  eacli  t'lble.  C^!'  the 
annual  increases  as  distributed  for  the  elementarv  teachers  in  Table 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


49 


TABLE   XXXVII 

ANNUAL  INCREASE  GRANTED  TO  INTERMEDIATE  TEACHERS 
IN   154  CITIES  REPORTING 

(Distributed  according  to  increases  granted  as  reported  by  city  superintendents  and  size  of  the  cities.)* 


Annual  Increase 

Number  of  cities  in  each  size  group 

wliere  stated  as 
a  definite  amount 

I 

„ 

III 

IV 

V 

VI 

Total 

S  22y, 

25 

36 

40 

45 

47>^ 

50 

60 

62  >i 

67>'i 

72 

75 

80 

90 
100 
180 
1851 

2 

2 

4 

5 
2 

2 

2 

.1 

4 

7 

1 
1 

1 
1 

3 

1 
1 
1 
11 
1 
5 

1 
1 
1 

3 
2 
1 

3 

7 
10 

1 
1 
2 

1 

\ 

1 
22 
1 
33 
3 
1 
1 
1 
3 
1 
6 
9 
1 
1 

No  definite   in- 
crease   

Varying  and  com- 
bination      in- 
creases (a) . . . 

4 

1 

2 

1 
6 

4 
11 

8 

7 

14 

5 

28 
35 

Total 

8 

7 

16 

35 

44 

44 

154 

*For  explanation  of  size  groups  see  page  g. 

(a)   In  this  group  seven  cities  reported  increases  of  $50-S100,  while  the  remaining  twenty-eight 
cities  reported  various  increases  such  as  $45-$90,  §38  first  year,  $64  the  second,  $25,  $50,  $75,  etc. 

XXXVI,  we  find  47  of  the  ^^^  cities  with  no  definite  increase,  and 
of  the  193  cities  reporting  fixt  increases,  we  find  164  or  85  per  cent 
giving  an  annual  increase  of  $50  or  less.  This  percentage  becomes 
70%  for  the  intermediate  teachers  and  54^  for  high  school  teachers. 
These  figures,  compared  with  the  returns  from  the  actual  increases 
given,  as  shown  in  Tables  XIV-XIX  inclusive  of  Part  I  from  the  same 
questionnaire,  will  show  that  by  far  the  most  common  increase  given 
to  the  teachers  is  $50,  or  less.  Should  these  figures  include  the  cities 
providing  for  no  increase,  the  percentages  would  run  very  much  higher. 
-An  increase  such  as  $22.50,  $25,  $45  or  $50  indicates  clearly,  as  was 
shown  also  in  the  above  tables  of  Part  I,  that  these  increases  have  been 
given  according  to  custom,  rather  than  in  any  attempt  to  adjust  the 
teacher's  salary  to  living  conditions  of  the  past  year.  Only  a  very  few 
superintendents  in  their  replies  indicated  the  existence  of  any  flexibility 
in  the  matter  of  the  annual  increase.  The  fact,  however,  that  four 
superintendents  definitely  stated  that  the  annual  increase  was  a  matter 
of  early  adjustment  ofifers  a  ray  of  hope. 

Question  6 — "On  what  conditions  does  the  granting  of  this  increase 
depend  ?" 

Table  XXXIX  gives  a  summary  of  the  309  answers  to  this  ques- 


50 


NATIONAL  EDUCATION   ASSOCIATION 


TABLE  XXXVIII 
ANNUAL  INCREASE  GRANTED  TO  HIGH  SCHOOL  TEACHERS  IN  301  CITIES  REPORTING 
(Distributed  according  to  increases  granted  as  reported  by  city  superintendents  and  size  of  the  cities.)* 


Annual  increase 

Number  of  cities  in  each  size  group. 

where  stated  as  a 
definite  amount 

I 

II 

III 

IV 

V 

VI 

Total 

$  25 

33i3 

35^ 

36 

45 

47  K 

50 

60 

62  K 

75 

80 

90 
100 
120 
185 
202 

1 

1 
11 

1 

2 

1 

1 
1 

2 

6 
4 

1 

5 

1 

8 

14 

2 
1 

1 

3 
12 

1 

6 

2 

11 

4 
5 

1 

12 
12 

2 

1 
2 
5 

1 

29 
43 

U 
40 

No     definite     in- 
crease 

Varying  and  com- 
bination    in- 
creases (a) 

6 

1 
10 

3 
13 

16 
18 

17 
17 

36 
20 

73 
84 

Total 

19 

15 

37 

75 

63 

92 

301 

*For  explanation  of  size  groups  see  page  g. 

(a)   In  this  group  twenty  cities  reported  increases  of  S50-S100;  eleven  cities  $45-S90;  nine  cities  $25 
50,  75,  while  the  other  forty-four  cities    reported  various  increases  such  as  $50  under  $900,  $10  up, 
$50-f-5%-|-$100  bonus,  etc. 


TABLE    XXXIX 

CONDITIONS  DETERMINING   THE  GRANTING  OF   INCRE.\SES   IN   SALARIES   IN   309 

CITIES  REPORTING. 

(Distributed  according  to  the  conditions  given  by  city  superintendents  and  size  of  the  cities.)* 


Condition 


Number  of  cities  in  each  size  group. 


Ill 


IV 


VI 


Total 


%  of 
group 


1.  "Success,"     "Merit,"  "Efficiency," 
"Satisfaction" 

2.  Length  of  Service 

3.  "Success  or  Efficiency  and  Length  of 
Service  " 

4.  "Training,"  "Education,"  "Self- 
improvem  ent "  (a) 

5.  Recommendation    of   Supt.,    Board, 
Committee,  or  a  combination  of  these. 

6.  "None." '  "Irregular" 

7.  "Market    Conditions,"     "Competi 
tion, "  "Scarcity" 

8.  "Cost  of  Living" 

9.  Other  Conditions  (b) 


Total. 


17 


13 


39 


76 


65 


99 


3091 


*For  explanation  of  size  groups  see  page  9. 

(a)  In  all  cases  except  five  this  is  in  combination  with  either  "tenure"  or  "success" 

(b)  Including  such  answers  as  "Attitude,"   "Professional  Zeal,"  "Funds  Available. 
Certificate. " 


30% 

27% 

17% 
7% 

6% 

3% 

2% 
1% 
4% 


"Class  6f 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  51 

tion.  There  were  almost  as  many  wordings  to  this  answer  as  there 
were  superintendents  answering  the  question.  Certain  groups  of  re- 
lated conditions,  however,  were  combined,  making  the  set  of  nine  given 
in  the  table.  By  far  the  largest  percentage  of  answers  give  as  the 
determining  condition  the  idea  of  success,  or  length  of  service,  or  a 
combination  of  these  two.  In  reality,  74  per  cent  of  the  answers  are 
included  within  the  first  three  groups.  This  indicates  that  three  out 
of  four  school  systems  have  a  more  or  less  automatic  method  of  grant- 
ing increases  to  teachers,  since  the  conditions  set  forth  in  Group  i 
amount  to  little  more  than  length  of  service  because  of  their  indefinite 
nature,  and  the  inaccuracy  of  any  present  methods  for  determining 
the  degree  of  "success,"  "merit,"  "efficiency,"  and  "satisfaction."  It 
is  significant  that  only  7  per  cent  of  the  replies  included  in  any  way 
the  element  of  training,  education,  or  self-improvement.  The  6  per 
cent  listed  under  Group  5  probably  belong  in  one  of  the  first  three 
groups.  A  separate  division  was  made  in  order  to  separate  those 
answers  where  definite  mention  was  made  of  a  recommending  author- 
ity. The  irregularity  of  the  answers  to  Question  6  is  not  as  evident 
from  the  form  in  which  the  table  is  put.  Of  the  309  answers,  there 
were  at  least  150  different  wordings  for  the  conditions  named.  These 
were  reduced  to  40  on  the  first  tabulation,  and  then  combined  into  the 
present  9.  This  table  will  help  to  show  the  need  for  a  greater  standardi- 
zation in  respect  to  the  granting  of  increases,  and  clearly  shows  the 
existence  of  one  of  the  most  difficult  problems  in  the  making  and  the 
administering  of  an  efficient  salary  schedule,  a  schedule  which  will  not 
only  protect  the  teachers  who  are  in  service,  but  which  will  oflfer 
constant  incentive  to  progress. 

Question  7 — "What  does  good  board  and  a  comfortable  room  cost 
an  elementary  school  teacher  in  your  community?"  (12  months). 

In  determining  some  adequate  measure  of  teachers'  expenses, 
"board  and  room"  was  decided  upon  as  the  figure  most  easily  obtained, 
and  most  reliably  usable.  As  a  single  figure  it  represents  the  biggest 
item  of  a  teacher's  expense  for  the  year,  and  also  probably  reflects  the 
cost  of  living  in  a  particular  community  as  well  as  any  other  single 
measure.  The  question  was  put  on  the  basis  of  12  months,  because 
teachers  have  to  live  thru  that  period  each  year,  and  teaching  cannot 
be  made  a  definite  profession  nor  real  progress  made  in  the  matter 
of  salaries  until  teachers'  salaries  and  expenses  are  computed  on  the 
basis  of  twelve  months  rather  than  nine.  Table  XL  gives  the  cost  of 
"board  and  room"  for  12  months  for  elementary  teachers  in  360  cities 
reporting,  and  by  means  of  the  footnotes  covers  the  answers  for  inter- 
mediate and  high  school  teachers  as  well.  There  is  considerable 
irregularity  in  the  median  costs  of  "board  and  room"  in  the  dift'erent 


52 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  XL 

COST  OF  "BOARD  AND  ROOM"  FOR  TWELVE  MONTHS  FOR  ELEMENTARY  TEACHERS 
IN  360  CITIES  REPORTING. 

(Distributed  according  to  amount  paid  for  board  and  room  and  size  of  city  )* 


Number  of  cities  in  each  size  group 

Cost  of  Board  & 

Room  for  twelve 

months 

I 

II 

III 

IV 

V 

VI 

Total 

$  50-  $99 

1 

1 

100-  149 

ISO-   199 

1 

1 

2 

200-  249 

/ 

1 

2 

3 

250-  299 

1 

1 

V 

1 

4 

7 

.? 

gk 

i 

gb 

300-  349 

^ 

2 

5 

17 

26 

"f 

hhi 

17* 

hzicC 

350-  399 

1 

1 

7 

23 

25 

40 

97 

c 

05)' 

urw 

yc 

400-  449 

2 
b 

1 

10 

20 

ne 

21 

30 

lid 

84 

450-  499 

5 

3 

5 

14 

10 

20 

57 

a 

de 

mp 

e 

500-  549 

5 

6 

9 

16 

10 

7 

53 

550-  599 

1 

1 

i 

1 

4 

7 

600-  649 

1 

1 

1 

5 

3 

4 

15 

650-  699 

1 

1 

700-  749 

1 

1 

2 

4 

750-  799 

1 

5 

1 

1 

3 

Total 

16 

13 

37 

86 

78 

130 

360 

Ql 

$460 

$471 

$395 

$388 

$383 

$361 

$376 

Median 

500 

513 

433 

440 

414 

402 

426 

Q3 

540 

540 

515 

511 

483 

459 

49  4 

*  For  explanation  of  size  groups  see  page  9. 

Notes  show  single  cases  where  superintendents  quote  higher  board  and  room  for  intermediate  or  high 
Fchool  teachers  than  for  elementary  teachers. 


a.  Elem.  S416-$520;  Inter.  $460-S5''0;; 

H.S.  $520 
6.  H.S.  $540. 

c.  H.S.  $480. 

d.  H.S.  $572. 

e.  H.S.  $520  up- 

/.  Inter,  and  H.S.  $4S0-$5OO. 

g.  H.S.  $364. 

h.  H.S.  $416. 

i.  H.S.  $400. 

j.  H.S.  $800. 

k.  H.S.  $300-$420. 

/.  H.S.  $312-$364. 

m.  Inter.  &  H.S.  $600. 

n.  H.S.  $468-$624. 

o.   Elem.  S300-S400;  H.S.E$360-$425. 


/).'H.S.  $500-$720. 

q.   Int.  $400-$450;  H.S.  $450. 

r.   H.S.  420-S500. 

5.  H.S.  $775. 

/.   Elem.  S312-S364;  H.S.  $364  up. 

H.  H.S.  S416-S520. 

V.  Elem.  S2  70:   Inter.  $312-$364. 

H.S.  $312-$520. 
w.  Elem.  $416:   Inter.  $416-5442; 

H.S.  $442. 
X.  H.S.  S350-$400. 
y.  H.S.  $400-S600. 
z.   H.S.  S364-.$468. 

A.  Elem.  $480-$600;  H.S.  $600  up. 

B.  Elem.  $336;   Inter.  $360;  H.S.  $364. 

C.  Elem.  $360;   Inter.  $360-$420;  H.S.  $420 


size  groups.  The  effect  of  the  size  of  the  city  is  as  pronounst  as  in 
any  other  items  of  the  study,  thru  the  comparison  of  the  median  $500 
for  "board  and  room"  in  cities  of  Group  I,  with  the  $402  in  cities  of 
Group  VI,  shows  as  great  a  difference  as  existed  in  the  median  sal- 
aries for  those  groups.  The  quartile  deviation  for  the  different  groups 
is  surprisingly  uniform  considering  the  prevalence  of  the  belief  that  it 
costs  very  much  more  to  live  in  the  larger  cities.  A  great  many  of  the 
answers  were  made  in  terms  of  multiples  of  52,  since  "board  and  room" 
in  most  places  is  figured  at  so  much  per  week.  The  grouping  of  these 
returns  into  intervals  of  $50  will  but  slightly  distort  the  figures,  since 


TEACHERS'  SALARIES  AND  SALARV  SCHEDULES  53 

the  groups  will  about  as  often  vary  one  way  as  the  other  from  the 
figure  actually  reported.  The  unusual  number  of  footnotes  to  this  table 
is  a  means  of  calling  attention  to  a  condition  which  has  been  allowed  to 
exist,  and  which  in  many  cases  is  taken  for  granted  as  necessary, 
namely,  that  high  school  teachers,  and  in  a  number  of  cases  interme- 
diate teachers,  pay  more  for  "board  and  room"  than  elementary  teach- 
ers. Twenty-nine  superintendents  in  answering  Question  7  for  the 
intermediate  and  high  school  teachers  put  a  higher  figure  for  the  high 
school  teachers  than  for  the  elementary  teachers.  The  footnotes  show 
the  dififerent  recognitions.  A  tabulation  of  the  difference  given  here 
brings  a  median  recognized  dilTerence  of  $68  in  the  year's  cost  for 
'"board  and  room."  Two  of  the  dififerences  are  as  high  as  $250.  This 
is  but  an  implied  acceptance  of  a  financial,  educational  and  social  dif- 
ference, which  in  many  communities  has  been  assumed  to  exist  between 
teachers  in  the  grades  and  the  high  school.  The  fostering  of  such  a 
distinction  cannot  help  but  work  against  the  professionalizing  of 
teaching,  and  yet  this  social  difterence  is  financially  forced  on  ele- 
mentary teachers  in  a  majority  of  cities  by  the  very  much  lower  salaries 
paid  to  them,  in  comparison  with  teachers  in  the  high  school.  A  satis- 
factory adjustment  to  this  condition  cannot  be  had  until  elementary 
teachers  are  as  well  prepared  for  their  work  as  high  school  teachers 
and  receive  equal  salaries. 

Additional  light  will  be  thrown  upon  the  adequacy  and  inadequacy 
of  the  minimal  and  maximal  salaries  establisht  in  the  salary  schedules 
of  these  cities  by  comparing  the  establisht  salaries  with  the  cost  of 
living  as  it  is  indicated  by  the  cost  of  "board  and  room"  within  each 
particular  city.  In  order  that  this  may  be  done  it  is  necessary  to 
determine  what  percentage  of  a  teacher's  annual  expenses  are  included 
in  "board  and  room."  This  cannot  be  done  without  a  careful  analysis 
of  teachers'  budgets,  and  the  consequent  study  of  the  necessary  ex- 
penses for  teachers  as  compared  with  the  expenses  of  workers  in  other 
fields.  In  this  study  it  is  advocated  that  "board  and  room"  should  not 
require  more  than  50  per  cent  of  a  teacher's  salary,  basing  this  prin- 
ciple upon  the  results  of  the  following  studies  or  budgets. 

Robert  Coit  Chapin,^  in  his  "Standard  of  Living  Among  Working- 
men's  Families  in  New  York  City,"  publisht  in  1909,  establisht  certain 
percentages  spent  for  housing  and  food  by  certain  income  groups, 
between  $400  and  $500  to  53  per  cent  for  families  with  incomes  be- 
tween $1,500  and  $1,600.  These  percentages  were  for  families  aver- 
aging five  members  and  for  New  York  City,  where  the  percentage 
spent  for  rent,  particularly,  would  be  higher  than  in  most  other  cities. 
Thev  were  also  for  families  where  the  expenses  of  professional  upkeep 


1  "Standards    of    Living    Among    Woikingmen's    Families    in    Xew    York    City,"    Russell 
Sage   Foundation — page   70. 


54 


.\AJ10\AL   EUiCAl'lUX    ASSOLlAl  lO.\ 


TABLE   XLI 

■WERAGE   PERCENTAGE   OF   SALARY   SPENT   FOR   VARIOUS    ITEMS   AND   AVER.\GE 

ANNUAL  SALARY   OF   WORKERS   IN    THE  SHIPBUILDING   DISTRICTS   OF 

THE   UNITED   STATES     1918.' 


Number  of  familes  studied. 

Clothing  for  men 

Clothing  for  women 

Total  for  clothing 

Furniture  and  furnishings .  , 

Food 

Housing 

Fuel  and  light 

Miscellaneous 

Total 

Average  annual  salary .... 


New  Eng- 
land and 
Eastern^ 


1232 
8.0% 

7.4% 

15.4% 

4.0% 

43.8% 

12.0% 

5.2% 

19.6% 

100.0% 

$1407.00 


Sou'h- 
crn' 


838 

7.4% 

6.8% 

14.2% 

4.1% 

44.4% 

11.3% 

4.4% 

21.6% 

100.0% 

$1334.00 


Great 
Lakes* 


1210 

7.8% 

6.9% 
14.7% 

4.4% 
41.6% 
14.2% 

5.0% 

20.1% 

100.0% 

$1460.00 


Pacifi 
Coast' 


918 

7.5% 

7.6% 
15.1% 

4.1% 
38.6% 
13.8%, 

4.1% 

24.3% 

100.0% 

$1422  00 


Total 


4198 

7.7% 

7.1% 
'  14.8% 

4.2% 
42.2% 
12.9% 

4.7% 
21.2% 

$1411.00 


1  From  Month!}'  Review,  Bureau  of  Labor  Statistics  for  the  months  of  March,  June, 
August,    September,    and    October,    1918. 

The  cities  included  in  each  group,  with  the  number  of  families  included  in  each,  are  as 
follows  : 

2  Bath  Me.  (99),  Portland,  Me.  (103),  Boston,  Mass.  (210),  Portsmouth,  Mass.  (104), 
Buffalo,   N.    Y.    (204),   Philadelphia,   Pa.    (512) 

^Mobile,  Ala.  (100),  Jacksonville,  Fla.  (57),  Pensacola,  Fla.  (65),  Tampa,  Fla.  (51), 
Slidell,  La.  (50),  Baltimore,  Md.  (205),  Beaumont,  Tex.  (50),  Houston,  Tex.  (91),  Newport 
News,  Va.  (72),  Norfolk,  Va.  (97).  Cities  with  less  than  50  families  studied  were  not  used 
in  these  figures,  nor  the  earnings  of  colored  workers  where  given  separately. 

*  Chicago,  111.  (215),  Detroit,  Mich.  (256),  Cleveland,  Ohio  (203),  Lorain,  Ohio  (109). 
Toledo,    Ohio    (207),    Manitowac,   Wis.    (iii),   Superior,   Wis.    (100) 

■^  Los  Angeles,  Cal.  (157)  San  Francisco,  Cal.  (286),  Portland,  Ore.  (164),  Seattle. 
Wash.    (208),  Tacoma,   Wash.    (103). 

and  educational  advancement  were  much  lower  than  for  the  ordinary 
teacher. 

The  Railroad  Wage  Commission,^  in  its  report  of  April  30,  19 18, 
found  that  for  265  families  studied,  the  amounts  spent  for  rent,  fuel, 
light,  furniture  and  food  varied  from  80  per  cent  in  families  with 
incomes  less  than  $600  to  67  per  cent  for  families  with  incomes  be- 
tween $1,000  and  $2,000.  These  were  the  figures  for  191 7  and  are 
consequently  higher  for  these  items  than  would  be  found  in  normal 
times,  due  to  the  unprecedented  increase  in  the  cost  of  these  items 
during  that  year. 

In  a  study  by  the  Bureau  of  Labor  Statistics-  of  the  percentage 
of  salaries  spent  for  various  items  by  workers  in  the  ship-building 
district  of  the  United  States  for  191 8,  it  was  found  that  the  average 
amounts  spent  for  furniture  and  furnishings,  food,  housing,  fuel  and 
light  amounted  to  64  per  cent.  Table  XLI  gives  these  percentages  for 
four  ship-building  districts  of  the  United  States.  The  64  per  cent  will 
again  be  influenst  by  the  fact  that  the  study  included  only  workers  with 
families,  and  also  by  the  same  conditions  as  were  true  in  the  Chapin 
and  Railroad  Wage  studies,  that  the  "miscellaneous"  expenses  arc 
necessarily  smaller  under  these  conditions  than  would  be  true  for  a 
teacher. 


1  From   the    Report   of   the    Railroad   Wage   Commission,   April   30,    1918 — page   93. 
=  Ship-building    from    the    Monthly    Review    of    the    Bureau    of    Labor    .Statistic."!    for    tVie 
mnnths  of   March,  June.  Augufsi.  September  and   October,    191R. 


lEACUEKS'  SALAKIES  AM)  SAL.IKV  SCHEDULES 


Bruere  in  "Increasing  Home  Efficiency"'  analyzes  the  budgets  of 
some  14  teachers  with  incomes  mostly  above  $1,000,  and  finds  that 
the  average  percentage  spent  for  food  and  shelter  by  these  teachers 
is  only  33.3  per  cent.  This  is  materially  lower  than  any  of  the  other 
precentages,  due  to  the  higher  salaries  of  the  teachers  studied  and  the 
fewer  people  dependent  upon  the  income. 

Gibbs  in  "The  Minimum  Cost  of  Living."-  a  study  of  families  of 
limited  income  in  New  York  City,  gives  as  the  ideal  division  for 
incomes  between  $800  and  $1,000.  rent  20  per  cent  and  food  30  per 
cent. 

The  Consumers'  League"  of  New  York  City,  in  a  study  of  the 
budgets  of  working  girls  in  New  York  State,  found  that  the  necessary 
distribution  of  expenses  for  an  income  of  $780  involved  the  expendi- 
ture of  49  per  cent  for  "board  and  room." 

Miss  Helen  Louise  Johnson,  Editor  of  the  General  Federation 
Magaauie,  the  official  organ  of  the  "Federation  of  Women's  Clubs  of 
America,"  and  national  authority  on  Household  Budgets,  when  askt 
what  percentage  of  a  teacher's  expenses  "board  and  room"  should  be, 
said :  "It  should  not  be  more  than  50  per  cent,  and  it  would  insure 
better  teachers  and  a  more  efficient  citizenship  if  it  were  only  40  per 
cent  instead  of  50." 

At  the  request  of  Professor  B.  R.  Andrews,  Assistant  Professor 
of  Household  Arts  of  Teachers  College,  the  following  estimates  of  the 
"board  and  room"'  cost  for  teachers  was  made  by  Mrs.  Alice  P.  Norton, 
Editor  of  the  Journal  of  Home  Economics: 

"Board  and  Room" 
lucomc  Per  cent 

$1,800 42 

1,200 50 

900 57 

780 59 

The  State  Teachers'  Association  of  Michigan.''  in  a  study  of  teach- 
ers' salaries  computed  tables  which  were  based  upon  the  assumption 
that  "board  and  room,  laundry  and  carfare"  for  twelve  months  would 
constitute  not  more  than  55  per  cent  of  a  teacher's  necessary  expenses. 

An  examination  of  the  teachers'  budgets  of  the  women  teachers  of 
Columbus,  Nebraska,''  corroborates  this  figure  by  giving  the  median 
annunl  expenditures  for  women  teachers  in  the  elementary  schools  for 


'Bruere,   "Increasins:   Home   Efficiency''— page    316.      Macmillan. 

= '•Minimum   Cost   of   Living,"    by   Winifred    Stuart    Gibbs — page    13.      Macmillan. 

■'  Pamphlet  of  "The  Consumers'  League  of  New  York  City  for  January,   ipig,  entitled  "In 
riiis  Living?" 

^Teachers'     Salaries     in     Michigan     by     the     Michigan     State     Teachers'     Asyociatioi 
[lage   6. 

°  Annual    Report   of   the    Superintendent   of   City    Schools,    ("olumhus.    Nebraska — pace   25. 


56  NATIONAL  EDUCATION   ASSOCL-ITION 

"board  and  room"  at  54.6  per  cent,  and  for  high  school  teachers  52.6 
per  cent. 

A  simiHar  sttidy  of  the  hving  expenses  of  250  teachers  in  Tulsa, 
Oklahoma/  gives  a  median  expenditure  of  49  per  cent  for  these  two 
items. 

If  with  increast  salaries  there  is  going  to  be  a  proportional  increase 
in  the  amount  of  preparation  demanded,  and  in  the  amount  spent  for 
professional  advancement  during  teaching,  the  per  cent  of  the  salary 
spent  for  **b«a*d  and  room"  must  constantly  decrease  rather  than 
increase.  Making  an  allowance  for  the  fact  that  in  the  above  studies 
and  estimates  many  of  them  are  for  families,  and  under  conditions 
not  demanding  as  heavy  expenditure  for  "advancement,"  it  seems 
entirely  fair  to  advocate  that  the  average  amount  spent  by  a  teacher 
for  ''board  and  room"  should  not  exceed  50  per  cent  of  her  income. 
As  the  budgets  of  individual  teachers  will  probably  show  with  present 
salaries  and  expenses,  more  than  50  per  cent  of  the  salary  will  be 
spent  for  "board  and  room."  Theoretically,  it  should  be  less  than  50 
per  cent,  since  the  expenses  other  than  "board  and  room,"  such  as 
clothing,  books,  magazines,  medical  service,  travel,  charity,  profes- 
sional advancement,  etc.,  should  require  50  per  cent  or  more  of  a 
teacher's  salary.  Moreover,  the  above  items  do  not  include  provision 
for  insurance,  savings  or  investments,  which  a  teacher  has  a  legitimate 
right  to  enjoy  as  well  as  the  responsibility  of  providing  for.  The  total 
necessary  expenses  for  elementary  teachers  were  computed  from  the 
cost  of  "board  and  room"  as  given  by  the  superintendents  in  their 
answers  to  Question  7.  These  total  expenses  (found  by  doubling  the 
price  of  the  cost  of  "board  and  room")  were  then  transferred  into 
percentages  of  the  minimal  and  maximal  salaries  offered  in  the  same 
cities.  Tables  XLII  and  XLIII  show  the  distribution  of  these  per- 
centages with  the  minimal  and  maximal  salaries.  It  is  noticeable  that 
when  the  total  expenses  foimd  in  this  way  are  referred  to  the  minimal 
salaries  that  the  median  percentages  of  those  salaries  spent  is  137.5 
per  cent.  In  other  words,  the  total  expenses  of  teachers  on  this  basis 
in  half  of  the  cities  exceed  137.5  P^r  cent  of  the  minimal  salary  offered. 
It  is  noticeable  that  6  per  cent  of  the  cities  have  total  expenses  on  this 
basis  exceeding  200  per  cent  of  the  minimal  salary,  and  that  97  per 
cent  of  the  cities  expect  teachers  to  start  at  a  minimal  salary  which 
would  demand  the  expenditure  of  more  than  100  per  cent  of  that  salary 
for  necessary  expenses. 

The  condition  is  better  relative  to  the  maximal  salaries,  but  even 
here  as  shown  in  Table  XLIII,  the  median  amount  of  the  maximal 


*  "Expenses  •!  Teachers  in  Tulsa,   Oklahoma" — National  Education  Association  Leaflet. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


57 


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TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  59 

salary  which  would  be  spent  is  99.3  per  cent.  The  teachers  in  48  per 
cent  of  these  cities,  according  to  this  standard,  are  compelled  to  spend 
more  than  100  per  cent  of  the  maximal  salary  offered.  This  means 
that  the  chances  are  about  even  in  the  310  cities  reporting  maximal 
salaries  for  elementary  teachers,  that  when,  after  years  of  service, 
this  maximum  is  reacht,  it  will  still  be  inadequate  to  meet  the  living 
expenses  in  that  city.  It  will  be  notist  in  Tables  XLII  and  XLIII 
that  there  is  a  distinct  negative  correlation^  between  the  minimal  and 
maximal  salary  granted  and  the  total  expenses  of  the  teachers  as  found 
by  counting  the  cost  of  "board  and  room"  as  50  per  cent  of  those 
expenses,  (a  correlation  of  practically  minus  .5  in  both  cases). ^  This 
means  that  the  higher  the  minimal  or  maximal  salary  the  smaller  the 
per  cent  of  salary  is  spent  for  necessary  expenses  and  the  lower  the 
salaries  set  the  larger  the  percentage  spent  for  living  expenses.  These 
figures  show  the  utter  inadequacy  of  salary  schedules  based  upon 
traditional  salaries,  and  the  urgent  necessity  for  establishing  minimal 
;'.nd  maximal  salaries  which  will  provide  for  an  adequate  living  imder 
conditions  prevailing  in  any  particular  locality.  Not  until  this  is  done 
and  some  provision  made,  not  only  to  meet  all  living  expenses,  but 
some  slight  saving,  can  we  hope  to  have  a  permanent  improvement  in 
the  quality  of  teachers  nor  in  the  amount  of  professional  advance- 
ment during  service. 

Question  8. — "Is  teaching  experience  a  prerequisite  to  election  in 
your  elementary  schools?" — "How  much?" 

Tables  XLIV,  XLV  and  XLVI  give  the  answers  to  this  question 
for  elementary,  intermediate  and  high  schools.  P^wer  superintendents 
answered  this  question,  as  will  be  shown  by  the  total  in  each  table,  and 
considerable  variation  existed  in  the  replies.  Where  definite  amounts 
of  experience  were  required  it  will  be  seen  that  by  far  the  largest 
number  of  cities  demand  one  or  two  years'  experience  as  a  prerequisite 
to  election.  T^or  elementary  schools  t,/  per  cent  of  the  cities  replying 
definitely  state  one  year  as  a  prerequisite,  and  39  per  cent  definitely 
give  two  years  as  a  requirement,  making  a  total  of  76  per  cent  de- 
manding either  one  or  two  years  of  experience.  For  intermediate 
schools  30  per  cent  demand  one  year,  42  per  cent  two  years,  a  total  of 
J2  per  cent,  while  for  high  schools,  35  per  cent  of  the  cities  demand 
one  year,  and  38  per  cent  two  years,  a  total  of  73  per  cent.  The  de- 
mand is  rather  constant  thru  the  three  divisions  with  the  exception 
that  there  is  a  slight  increase  in  the  number  of  cities  demanding  three 
years  of  experience  for  high  school  teachers.  Relatively  few  of  the 
cities    specify   that    normal    training    will    serve    as    a    substitute    for 

1  For  explanation  of  term  see  page   164.  Appendix  III. 
■■'Found   by  method   explained   on  page   164-5.  Appendix    IIJ. 


60 


NATIONAL   EDUCATION  ASSOCIATION 


TABLE  XLIV 

NUMBER  OF  YEARS  OF  TEACHING  EXPERIENCE  REQUIRED  AS  A  PREREQUISITE  TO 

ELECTION   IN  THE  ELEMENTARY  SCHOOLS  OF  205  CITIES  REPORTING. 

(Distributed  according  to  amount  of  experience  required  and  size  of  the  cities.)* 


Number  of  cities 

in  each  size  group. 

Experience  required  in  years 

I 

II 

III 

IV 

V 

VI 

Total 

0 

1 

1 

2 

4 

K 

1 

1 

1 

2 

4 

11 

14 

16 

29 

76 

2 

7 

1 

11 

19 

16 

26 

80 

3 

1 

1 

2 

6 

4 

1 

1  to  2 

2 

2 

7 

1  to.S 

1 

2  to  5 

1 

1 

Normal  training  and  graduation 

3 

1 

1 

6 

Normal  training  +   1  or  2  years' 

experience 

1 

1 

3 

Normal  training  or  1  or  2  years' 

experience 

1 

"Probation,"     "Apprentice,"    or 

"Cadet" 

2 

3 

"Some"  experience  required 

2 

4 

6 

"No  definite  rule" 

1 

6 

7 

Other  requirements 

1 

1 

2 

Total 

11 

12 

24 

46 

40 

72 

205 

*For  explanation  of  size  groups  see  page  9. 

TABLE  XLV 

NUMBER  OF  YEARS  OF  TEACHING  EXPERIENCE  REQUIRED  AS  A  PREREQUISITE  TO 
ELECTION  IN  THE  INTERMEDIATE  SCHOOLS  OF  120  CITIES  REPORTING. 

(Distributed  according  to  amount  of  experience  required  and  size  of  the  cities.)* 


Number  of  cities  in  each  size  group. 

Experience  required  in  years 

I 

II 

III 

IV 

V 

VI 

Total 

0 

1 
2 
3 
4 
5 
2  to  3 

2  to  6 

3  to  4 

Normal  training  and  graduation 
"Some"  experience  required 
"No  definite  rule" 
"Experience  preferred" 
Other  requirements 

5 

1 

1 

1 

2 
2 

1 
1 

6 
6 

1 

12 

10 
11 

14 
15 
3 

4 

1 

36 

51 

12 

1 

1 

1 

1 

2 

3 

8 
2 

Total 

7   1              7 

13 

26 

31 

36  1            120 

*¥oT  explanation  of  si  e  group.s  see  pa^e  9. 

experience,  'i'liese  totals  slicnv  the  prevalence  of  the  custom,  too 
frmly  fixl  by  sch  )ol  men,  of  demanding  experience  before  election  to 
city  systems.  This  automritically  niakes  the  rural  school  aid  the 
pC'orer  district.^  the  "training  schools"  for  city  teachers. 

C'uestion  <;.-  -"State  th.e  iiunil;er  of  years  in  ac'idemic  -md  pr  jfes- 
sion.-il  preparation  above  the  <Sth  grade  v,-hich  is  a  prer-equisite  to 
election  in  your  school?" 


TEACHERS'  SALARIES  AXD  SALARY  SCHEDULES 


61 


TABLE  XLVl 

NUMBER  OF  YEARS  OF  TEACHING  EXPERIENCE  REQUIRED  AS  A  PREREQUISITE  T(J 
ELECTION  IN  THE  HIGH  -SCHOOLS  OF  170  CITIES  REPORTING. 

(Distributed  according  to  amount  of  experience  required  and  size  of  the  cities.)* 


Number  of  cities  in  each  size  group. 

Experience  required  in  years 

I 

\ 
II              III 

IV 

V 

VI 

Total 

0 

1 
2 
3 

4 
5 
6 

1  to  2 

2  to  7 

3  to  4 
"No  definite  rule" 
"Apprentice  for  2  years" 
Normal  training  and  graduation 
"Judgment  of  superintendent" 

2 
6 

3 

4 
5 

1 
1 

10 
13 

1 
1 

12 
15 
6 

1 

1 
1 

4 

1 
13 
14 

2 

2 

4 
1 

19 
11 
3 

5 

7 
1 

I 
60 
64 
14 

1 
9 

1 

ll 

1 
1 

1 

Total 

11 

11    1            25 

40 

37 

46 

170 

*For  explanation  of  size  groups  see  page  9. 


Tables  XLVII,  XLVIII  and  XLIX  give  the  answers  to  this  ques- 
tion, and  are  particularly  interesting  because  of  the  uniformity  of  these 
requirements.  The  median  number  of  years  for  elementary  and  inter- 
mediate schools  is  six  years,  representing  as  it  does  a  completion  of 

TABLE  XLVII 

NUMBER  OF  YEARS  IN  ACADEMIC  AND  PROFESSIONAL  PREPAR.\TION  ABOVE  THE 
EIGHTH  GRADE  WHICH  IS  PREREQUISITE  TO  ELECTION  IN  THE  ELEMEN- 
TARY   SCHOOLS    OF    338    CITIES    REPORTING. 
(Distributed'according  to  amount  of  preparation  and  size  of  the  cities.)* 


Number  of  cities  in  each  size  group. 

Years  of  preparation  beyond 
the  8th  grade 

I 

II 

III 

IV   ! 

1 

V 

VI 

Total 

0 

1 
2 
3 
4 

5 
6 

7 
8 
9 

**4  to  6 
**6  to  8 
**  Indefinite  and  varied  require- 
ments (a). 

1 

16 
2 

1 
11 

1 

1 

2 

4 

4 

26 

3 

1 

2 

9 
9 

52 

1 
1 

2 
3 

5 

3 
1 

19 
3 

i3 

3 
2 

8 

1 

6 

Jl 

21 

18 

53 

1 

1 

2 
3 

15 

1 

13 

4 

54 

34 

.9. 

3 

7 
13 

1 

Total 

19 

14 

39 

80 

69 

117 

338 

Median  number  of  years 

%  requiring  less  than  4  years 

%  requiring  6  years 

%  requiring  8  or  more  years 

6.53 

0% 

94% 

1         0% 

6.50 
0% 

85% 
8% 

6.31 

6% 

72% 

0% 

6.32 
4% 

69% 
1% 

6.03 

14% 

52% 

0% 

5.95 

16% 

47  7o 

1% 

6.25 
10% 
60% 

1% 

*For  explanation  of  size  groups  see  page  9. 
**Not  included  in  percentages.  . 

(a).  In  twenty  of  the  cases  listed  under  specific  years  the  superintendents  place  limiting  conditions 
ch  as  "6  years  or  5  years  and  3  years'  experience,"  "6  years — prefer  two  more,"  "4  years— 6  weeks 

of  professional  work  desired,"  etc.     In  practically  all  cases  the  changes  indicate  an  increase  in  existing 

standards. 


62 


NATIONAL   EDUCATION   ASSOCIATION 


TABLEXLVIII 

NUMBER  OF  YEARS  IN  ACADEMIC  AND  PROFESSIONAL  PREPARATION  ABOVE  THE 
EIGHTH  GRADE  WHICH   IS  PREREQUISITE  TO  ELECTION  IN 

THE  INTERMEDIATE  SCHOOLS  OF  167  CITIES  REPORTING. 
(Distributedfaccording  to  amount  of  preparation  and  size  of  the  cities  )* 


Years  of  preparation  beyond 

Number  of  cities  in  each  size  group. 

the  8tli  grade 

I 

II 

III 

IV 

V 

VI        !  Total 

,0 
1 

2 
3 

4 
S 
6 

7 
8 
9 
**4"to  6 
**6  to  8 
♦'Indefinite   and   variea   require- 
ments' 

5 

1 
1 

1 

1 

6 

1 

1 

12 
2 
1 

1 

2 

2 

21 

1 

4 

1 

5 

4 
1 

5 

2 

23 

1 

1 

1 

6 

1 

4 

\ 

2 
30 

5 

2 
5 

0 
1 
8 
2 

11 
7 

97 
3 

12 
2 
1 

10 

13 

Total 

9 

7 

17 

36 

44 

54 

167 

Median  number  of  years 

%  requiring  less  than  4  years 

%  requiring  6  years 

%  requiring  8  or  more  years 

6.70 

0% 
71% 
29% 

6.50 

0% 

100%, 

0% 

6.58 
0% 

75% 
6% 

6.55 

0% 
68% 
16% 

6.26 

14% 

64% 

3% 

6.38 

13% 
64% 
10% 

6.44 

8% 
67% 
10% 

*For  explanation  of  size  groups  see  page  9. 
**Not  included  in  percentages. 

•Fifteen  superintendents  put  limiting  conditions  upon  the  number  of  years  specified  "plus  pro- 
fessional training,"  "plus  special  work,"  "v/ith  a  first  grade  certificate,"  but  in  all  cases  the  added 
conditions  show  an  increase  in  the  existing  standard. 


TABLE  XLIX 

NUMBER  OF  YEARS  IN  ACADEMIC  AND  PROFESSIONAL  PREPARATION  ABOVE  THE 

EIGHTH  GRADE  WHICH  IS  PREREQUISITE  TO  ELECTION  IN  THE  HIGH 

SCHOOLS   OF   327    CITIES    REPORTING. 

(Distributed][|according  toSamount£ofJpreparationj;and  size  of  the  cities  )* 


Years  of  preparation  beyond 

Number  of  cities  in  each  size  group. 

the  8th  grade 

I 

II 

III 

IV 

V 

VI 

Total 

0 

1 
2 
3 

4 
5 
6 

7 
8 
9 

**4  to  6 
**6  to  8 
♦*Indefinite   and    varied   require- 
ments' 

1 

16 

1 

-      10 
1 

2 

1 

1 

1 

34 

1 

I 

3 

2 

60 

5 

10 

1 
1 

3 

53 

1 

2 

1 
3 
1 
3 

12 

82 
3 

5 

1 
1 
3 
1 

15 
1 

17 

6 

255 

12 

9 

Total 

18 

13 

38 

73 

72 

113 

327 

Median  number  of  years 
%  requiring  less  than  6  years 
%  requiring  8  years 
%  requiring  9  years 

8.53 
6% 

89% 
6% 

8. 55 

91% 
9% 

8.47 

3% 

89% 

3% 

8.49 

1% 

85% 

'/% 

8.37 
16% 

77% 
1% 

8.40 

8% 
80%, 

3% 

8.43 

7% 
82% 

4% 

*For  explanation  of  size  groups  see  page  9. 

**Not  included  in  the  percentages. 

'Twenty-two  superintendents  put  limiting  conditions  upon  the  number  of  years  specified,  such 
as  "6  years  but  two-thirds  of  the  teachers  must  be  college  graduates,"  "or  more."  Six  cities  specify 
less  preparation  required  for  "commercial  and  non-academic  subjects."  In  all  other  (a.«es  the  condi- 
tions are  an  Increase  over  existing  standards. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  63 

high  school  and  at  last  a  two  years'  normal  training  course.  The 
standard  for  high  schools  is  easily  seen  to  be  eight  years  or  the  com- 
pletion of  four  or  more  years  of  college.  In  these  tables,  particularly 
for  the  elementary  schools,  the  effect  of  the  size  of  the  city  is  again 
noticeable,  since  there  is  a  regular  decrease  in  the  percentage  of  cities 
requiring  six  years  or  more  of  training  as  the  size  of  the  city  decreases. 
These  tables  show  that  for  cities  at  least,  we  have  quite  definite 
standards  of  preparation,  with  a  tendency  for  elementary  and  inter- 
mediate schools  to  increase  above  six  years  beyond  the  8th  grade,  and 
for  high  school  teachers  to  add  a  5th  year  to  college  work. 

CONCLUSIONS 

The  following  conclusions  and  generalizations  seem  warranted  from 
the  data  presented  in  this  chapter.  There  will  be  notable  exceptions  in 
most  cases,  which,  however,  will  not  seriously  affect  their  validity. 

Part  I  of  Questionnaire  to  Superintendents 

1.  Salaries  Paid— 1918-19  : 

(a)  Elementary  salaries  are  too  low,  even  in  the  cities,  for  efficient  work 

and  proper  living  conditions  for  an  individual  teacher,  and  entirely 
inadequate  for  the  support  of  families. 

(b)  There  is  wide  variation  in  the  salaries  paid  between  cities  of  different 

sizes — the  larger  the  city  the  larger  median  salary. 

(c)  There  is  wide  variation  between  salaries  paid  in  different  sections  of 

the  United  States,  the  best  salaries  being  paid  in  the  far  western 
states,  and  the  lowest  salaries  in  the  southern  section. 

(d)  There  is  a  wider  variation  than  that   in  either    (b)    or    (c)    between 

salaries  paid  within  any  group,  and  in  the  larger  cities  within  the 
city  itself. 

(e)  The  median  salaries  show  a  slight  improvement  over  conditions  of  last 

year  as  shown  by  the  National  Education  Association  study;  but 
the  improvement  is  not  at  all  in  proportion  to  the  increast  cost  of 
living. 

(f)  Intermediate   teachers  are  paid   about  $100  more  per  year  than  ele- 

mentary teachers,  and  high  school  teachers  are  paid  nearly  $300 
more. 

(g)  Salaries  paid  in  New  York  City,  Newark,  and  several  other  of  the 

larger  cities  are  much  higher  than  those  for  the  country  at  large. 

2.  Increases  Granted  to  Teachers — 1918-19  ; 

(a)  The  median  increase  for  elementary  teachers,  $74,  is  much  too  low  to 

provide  for  the  increast  cost  of  living,  or  to  provide  for  better 
preparation  and  more  efficient  service. 

(b)  Increases  are  generally  given  on  the  basis  of  $5  or  $10  a  month. 

(c)  The  increases  were  not  given  to  those  most  in  need  of  them,  since 

"new  teachers"  in  a  great  many  school  systems  were  the  only  chcs 
who  did  not  receive  increase.*:.    The  tendency  to  jive  increases  ■••re 


64  NATIONAL  EDUCATION  ASSOCIATION 


often  to  teachers  receiving  below  the  median  salary  is  so  slight  as  to 
be  negligible. 

(d)  Relatively    few   cities   give   increases   graduated   in    proportion    to    the 

service  rendered  or  additional  preparation  secured. 

(e)  The  two  popular  methods   for  granting  increases  are  first,  "flat  sum" 

of  so  much  a  month  or  so  much  a  year,  and  second,  a  percentage 
of  the  present  salary  received.  The  first  gives  the  teachers  receiving 
the  lower  salaries  a  higher  percentage  of  increase,  while  the  second 
gives  the  teachers  receiving  the  highest  salaries  the  largest  increase. 
Teachers  Leaving — 1918-19  : 

(a)  The  number  of  teachers  leaving  the  different  school  systems,  in  com- 

parison with  the  number  leaving  to  enter  some  other  field  of  work, 
indicates  that  the  shortage  of  teachers  brought  about  keener  compe- 
tition between  cities  for  the  better  teachers. 

(b)  Since  66  per  cent  or  more  of  the  teachers  leaving  during  the  year  were 

receiving  less  than  the  median  salaries  of  the  groups  in  which  they 
were  teaching,  it  is  evident  that  the  lack  of  salary  was  an  item 
causing  these  teachers  either  to  change  to  some  other  system  or  to 
some  other  line  of  work. 

P.\RT  II  OF  Questionnaire  to  Superintendents 
Number  of  Months  in  School  Year: 

(a)  Forty  per  cent  of  the  schools  reporting  have  10  months  or  more  of 

school,  which  would  indicate  a  distinct  tendency  thruout  the  country 
toward  10  months  as  a  standard  term. 

(b)  The  larger  the  city,  the  longer  the  term  of  school. 
Cities  Having  Establisht  Salary  Schedules : 

(a)  There  is  more  tendency  to  establish  salary  schedules  for  elementary 
teachers  than  for  intermediate,  and  more  for  intermediate  than  for 
high  school. 

(h)   The  larger  the  city  the  more  apt  it  is  to  have  establisht  schedules. 
Minimal  Salaries  for  Teachers — 1918-19: 

(a)  The  larger  the  city  the  larger  the  minimal  salary. 

(b)  Minimal  salaries  are  too  low  in  practically  all  cities,  since  88  per  cent 

of  the  cities  reporting  oflfer  minimal  salaries  below  $800.  Enough 
cities  have  establisht  minimal  salaries  of  $1,000  or  more,  however, 
to  show  that  the  National  Education  Association's  proposal  for  this 
as  a  minimum  for  all  teachers  is  entirely  possible. 

(c)  Minimal  salaries  for  intermediate  schools  and  high  schools  are  subject 

to  the  same  limitations  as  for  elementary  schools.    They  are  slightly 
higher  in  each  case,  but  no  more  than  the  additional  preparation 
required  should  demand. 
Maximal  Salaries— 1918-19 : 

(a)  Maximal  salaries  vary  also  in  direct  relation  to  the  size  of  the  city. 

(b)  They  are  entirely  inadequate  in  most  cities.     Seventy-one  per  cent  of 

the  elementary  maximal  salaries,  54  per  cent  of  intermediate  salaries 
and  15  per  cent  of  the  high  school  salaries  are  below  $1,000.  This, 
as  an  ultimate  goal  towards  which  to  strive,  is  much  too  low  to 
act  as  an  incentive  or  to  secure  the  kind  of  teachers  that  America 
needs. 


TEACHILRS'  SALARIES  AXU  SALARY  SCHEDULES  65 

5.  Annual  Increases  Granted  According  to  Salary  Schedule : 

(a)  Annual  increases  as  provided  for  in  schedules  are  entirely  insufficient. 

Eighty-five  per  cent  of  the  regular  increases  provided  for  elementary 
teachers  are  $50  or  below. 

(b)  Increases  are  not  given  in  relation  to  cost  of  living  conditions. 

(c)  Increases  do  not  vary  according  to  the  size  of  the  cities  as  much  as 

other  elements. 

6.  Conditions  Determining  Granting  of   Increases: 

(a)  Most  of  the  increases  are  given  as  a  result  of  continuation  in  service. 

Tenure  and  adjudged  success  are  conditions  governing  the  granting 
of  increases  in  75  per  cent  of  the  cities. 

(b)  Practically  no  recognition  is  given  to  educational  preparation  or  con- 

tinued training. 

7.  Expenses  as  Shov^fo  by  Cost  of  "Board  and  Room" : 

(a)  There  is  a  slight  decrease  in  a  teacher's  total  expenses  as  size  of  the 

city  decreases,  but  it  is  not  in  proportion  to  the  decrease  in  salary. 

(b)  On  the  basis  of  "board  and  room"  being  50  per  cent  of  a  teacher's 

total  necessary  expenses,  these  expenses  are  shown  to  be  out  of  all 
proportion  to  the  minimal  and  maximal  salaries  establisht  in  most 
of  the  cities.  On  this  basis,  practically  half  of  the  teachers  would 
be  compelled  to  spend  more  than  the  maximal  salary  obtainable 
under  existing  schedules.  This  indicates  that  teachers  deny  them- 
selves books,  clothing,  professional  advancement  and  other  expenses 
which  would  increase  their  teaching  efficiency  could  they  afford 
them. 

(c)  A  number  of  places  indicate  the  fact  by  giving  higher  cost  of  "board 

and  room,"  that  intermediate  and  high  school  teachers  are  expected 
to  live  on  a  higher  financial  standard  than  elementary  teachers. 

8.  Number  of  Years  of  Teaching  Experience  Required  as  a  Prerequisite : 

(a)  A  larger  proportion  of  the  cities  in  Groups  I,  II  and  III  demand  one 

or  two  years  of  teaching  experience  as  a  prerequisite  to  election  than 
in  the  smaller  groups. 

(b)  There   is   a  decided  tendency   for  cities   to   demand  previous   teaching 

experience. 

(c)  Very  few  cities  allow  professional  training  obtained  in  normal  schools 

and  other  institutions  to  substitute  for  experience.  As  a  conse- 
quence, the  rural  schools  and  smaller  city  systems  are  used  for 
training  purposes. 

9.  Number    of    Years    in    Academic    and    Professional    Preparation    Above    the 
8th  Grade  Which  Is  a  Prerequisite  to  Election  : 

(a)  There  is  a  markt  tendency  to  require  6  or  more  years  of  training  for 

teaching  in  the  elementary  schools. 

(b)  More  intermediate  schools  require  training  beyond  6  years  than  ele- 

mentary, making  the  median  number  of  years  slightly  higher  in 
all  cases. 

(c)  Eight  or  more  years  beyond  the  elementary  schools  is,  with  very  few 

exceptions,  the  standard  demanded  for  high  schools,  the  median 
in  practically  every  group  being  8^  years. 


CHAPTER  II 

Salary  Situation  in  the  United  States  as  Shown  by  Questionnaire  to 

Individual  Teachers 
The  salary  situation  thruout  the  country,  in  as  far  as  it  is  shown  by 
the  salaries  and  living  expenses  of  over  50,000  teachers,  was  obtained 

from  the  questionnaire  to  City  and  County  Superintendents.  These 
50,000  teachers  represent  an  adequate  random  sampling  of  all  the 
teachers  of  the  country,  especially  for  city  systems.  However,  in 
order  to  get  data  on  the  situation  in  greater  detail,  the  blank  shown 
on  page  8  was  prepared.  This  blank  was  to  be  mimeographt  or 
printed  by  school  officials  or  teachers'  organizations  in  the  different 
cities,  so  that,  \vhere  possible,  the  returns  from  the  teachers  might  sup- 
plement information  given  by  the  superintendents.  Questions  were 
askt  on  the  blank  which  would  reveal  the  salary  situation  and  the  con- 
ditions which  directly  or  indirectly  govern  it,  such  as  length  of  ex- 
perience, amount  of  preparation,  and  similar  conditions.  Even  more 
detailed  information  might  have  been  askt  for,  but  for  the  two  reasons 
that  the  sheet  had  to  be  of  a  size  which  could  be  mimeographt,  and 
that  too  much  detailed  data  relative  to  teachers'  expenses  would  have 
discouraged  enough  teachers  from  answering  the  questions  to  destroy 
the  added  value  of  the  detailed  information.  Every  evidence  would 
show  that  the  questionnaires  were  filled  out  by  the  teachers  with  per- 
fect freedom,  and  that  care  was  taken  that  they  should  not  be  locally 
inspected.     This  fact  adds  to  the  significance  of  the  returns. 

These  questionnaires  were  classified  according  to  the  same  size  and 
geographical  groups  as  were  the  replies  from  the  superintendents. 
The  work  on  this  part  of  the  problem  was  seriously  delayed  by  the 
failure  of  enough  cities  in  certain  groups  to  have  these  blanks  promptly 
prepared.  The  tabulations  of  the  returns  were  held  until  the  latest 
possible  moment,  by  which  time  all  but  one  of  the  30  groups^  were 
represented.  Where  more  individual  blanks  were  returned  than  could 
profitably  be  used  in  any  one  section,  a  random  sampling  was  made 
in  order  to  secure  figures  more  representative  of  that  particular  group 
by  including  more  cities.  Two  hundred  blanks  thus  selected  at  ran- 
dom were  set  as  the  minimum  for  any  group.  In  several  groups  where 
plenty  of  replies  were  received  early  in  the  spring,  more  replies  were 
used  in  order  to  give  it  the  added  validity  of  greater  numbers.  Teach- 
ers of  intermediate  schools  and  high  schools  were  as  professionally 
interested  in  filling  out  the  blanks  as  were  the  teachers  in  the 
elementary  schools,  even  tho  they  were  in  most  cases  better  paid.  As 
large,  or  a  larger  proportion  of  them  returned  the  blanks,  but  there 


*  Six  size  groups  within  each  of  five  geographical   groups  making  this  total.     For  explana 
tion   of  groups  see  page  9. 

66 


lEACHEKS'  SALARIES  A.\D  SALARl  'SCHEDULES  67 

were  so  many  groups,  particularly  for  the  intermediate  teachers  in 
which  not  enough  returns  were  received  to  adequately  represent  that 
group,  that  it  was  deemed  advisable  to  put  all  the  intermediate  teach- 
ers into  one  group,  and  similarly  with  the  high  school  teachers.  This 
gives  a  study  of  the  conditions  for  these  two,  upon  which  valid  con- 
clusions can  be  based,  even  tho  the  distinction  between  communities 
and  city  sizes  may  not  be  shown  in  the  same  manner  as  for  the 
elementary. 

There  are  possibilities  for  many  interesting  studies  in  the  material 
given  in  the  individual  teacher's  questionnaire.  Only  those  of  them 
were  selected  which  were  considered  to  bear  most  directly  upon  the 
immediate  salary  problem.  The  following  studies  were  selected  and 
distributions  were  made  in  the  form  of  correlation  tables  similar  to  the 
one  on  page  69.  The  distribution  intervals  varied  for  the  different 
studies  and  will  be  indicated  for  each  one. 

1.  To  find  the  relation  between  "total  teaching  experience"  and 
"total  salary  received."^ 

2.  The  relation  between  "personal  living  expenses"  and  "total 
salary"  for  the  two  year  period  involved  in  the  questionnaire.  The 
data  were  askt  for  only  two  years,  since  that  included  the  period  of 
our  participation  in  the  war,  and  also  since  it  was  thought  figures  given 
in  most  cases  for  living  expenses  before  that  time  would  be  much  less 
accurate.     The  living  expenses  were  distributed  over  $50  intervals. 

3.  The  relation  between  the  "per  cent  of  salary  spent  for  personal 
living  expenses"  and  the  "total  salary  received"  for  the  two  years. 
The  percentages  were  distributed  in  5  per  cent  intervals. 

4.  The  relation  between  the  "increase  or  decrease  of  the  per  cent 
of  salary  spent  for  living  expenses"  in  1918-19  over  1917-18  and  the 
"total  salary  received  1918-19."  The  distribution  began  at  minus  40 
per  cent  and  extended  in  intervals  of  5  per  cent  to  plus  80  per  cent. 

5.  The  relation  between  the  "amount  spent  for  recreation,  pro- 
fessional advancement,  etc.,"  and  the  "total  salary  received"  for  both 
years.     This  was  distributed  over  $10  intervals. 

6.  The  relation  between  "total  expenses"  and  "total  salary  re- 
ceived" for  the  two  years.  $50  intervals  were  used  again.  The  total 
expense  was  found  by  adding  the  total  personal  expenses  and  the 
amount  spent  for  recreation. 

7.  The  relation  between  the  "per  cent  of  salaries  spent  for  total 
expenses"  and  the  "total  salary  received."  Five  per  cent  intervals 
were  used  for  the  per  cent  of  salaries  spent. 

8.  The  relation  between  the  "increase  or  decrease  of  the  'per  cent 


*  Salaries  in  all  the  studies   were  distributed  on   the   $50   intervals   used  in   Ckapter   I. 


68  NATJ&NAL   EDUCATIOX   ASSOC! ATIOX 


of  salaries  spent  for  total  expenses'  "  in  1918-19  over  1917-18  and  the 
"total  salary  received."  Five  per  cent  intervals  were  used  for  the 
increase  or  decrease. 

9.  The  relation  between  "total  number  of  years  of  schooling"' 
above  the  8th  grade  and  the  "total  salary  received." 

10.  The  relation  between  the  "bonuses  received"  during  the  two 
years  and  the  "salary  received  each  year."  These  were  distributed 
in  $10  intervals. 

11.  The  relation  between  "additional  income"'  and  "total  salary 
received"  for  the  two  years.  Ten  dollar  intervals  for  the  additional 
income. 

12.  The  relation  between  "age"  of  teachers  and  "total  salary  re- 
ceived."    Three-year  intervals  used  for  the  age. 

13  and  14.  The  relation  of  "marital  conditions  and  dependents 
supported"  to  the  "total  salary  received." 

Fifteen  thousand  teachers  filled  out  this  questionnaire  and  returned 
it  by  the  first  of  June  and  fully  half  of  these  were  utilized  in  the  studies 
of  this  chapter.  It  was  possible,  because  of  earlier  returns,  to  tabulate 
more  of  the  questionnaires  for  the  groups  in  "Size  Group  IV."  This 
gives  some  added  validity  to  the  findings  for  this  group  which  will  be 
of  as  much  service  as  any  other  single  group,  since  many  of  the  cities 
in  Class  IV  are  just  establishing  salary  schedules.  The  number  of 
cities  answering,  and  used  in  the  groups,  is  large  enough  to  be  repre- 
sentative of  the  cities  of  that  size  in  that  section.  Groups  BI,  CI,  and 
DI  were  represented  almost  entirely  by  single  cities,  but  they  are,  at 
the  same  time,  good  types.  The  list  given  in  appendix  II  gives  the 
cities  from  which  replies  were  received  and  the  classification  used  for 
each  city. 

The  problem  which  appeared  immediately  in  using  the  large  amount 
of  material  from  the  individual  questionnaires  was  the  form  in  which 
lo  put  it,  in  order  that  existing  conditions  and  tendencies  might  be 
shown  in  their  relation  to  salaries.  To  make  this  possible,  it  was 
necessary  to  make  distributions  of  the  answers  from  each  group  for 
each  topic  studied.  These  were  done  in  the  form  of  correlation  tables 
similar  to  Table  L.  From  these  tables.  609  in  number  for  the  ele- 
mentary teachers  and  21  each  for  the  intermediate  and  high  school 
teachers  (because  of  combination  previously  explained),  it  is  possible 
to  get  the  median  salaries  of  the  teachers  answering  any  item  for  each 
section,  as  well  as  the  medians  for  the  item  under  consideration.  The 
material  in  these  651  correlation  tables  is  very  valuable  to  teachers, 
but  some  way  of  presenting  it  in  a  briefer  space  than  651  pages  is 
necessary.  Consequently,  it  will  be  presented  in  two  ways.  First,  the 
medians  existing  for  the  several  items  in  the  several  groups  will  be 


TEACHERS'  SALARIES  AXD  SALARY  SCHEDULES 


69 


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70  NATIONAL  EDUCATION  ASSOCIATION 

presented,  and  second,  the  correlation  existing  between  the  several 
items  and  the  salary  received  in  the  several  groups. 

PART  I. 

Salary  Situation  as  Shown  by  Medians  of  Items  Studied. 

All  the  medians  of  all  the  items  studied  have  been  assembled  in 
Table  LI.,  and  arranged  according  to  size  and  location.  The  number 
of  answers  used,  as  given  in  the  table,  is  the  total  number  of 
teachers  whose  replies  were  used.  Teachers  did  not  always  answer 
all  of  the  questions,  so  the  number  of  teachers  in  each  study  varies 
slightly  from  the  total  number  as  given.  This  variation  is  in  no  case 
enough  to  affect  the  validity  of  the  results.  Because  this  variation  is 
negligible,  the  median  salary  is  given  only  once  for  each  of  the  two 
years  studied,  and  can  be  used  for  comparison  with  the  items  studied 
for  the  respective  years. 

An  examination  of  the  median  salaries,  as  reported  by  the  teachers, 
shows  the  same  effect  of  size  of  city  upon  salaries  as  was  evidenst  in 
Chapter  I.  The  decreases  in  median  salaries  are  at  about  the  same 
rate  as  in  Table  I.  The  median  salaries  are  in  all  size  groups  some- 
what less  than  the  corresponding  medians  in  Table  I.  This  is  ex- 
plained by  the  fact  that  probably  a  larger  proportion  of  the  more  poorly 
paid  teachers  filled  out  the  blanks  and  returned  them.  It  is  evident 
from  the  comparison  of  the  median  salaries  for  1918-19  with  those  of 
the  previous  year,  that  salaries  were  increast  from  $80  to  $100  in  all 
the  groups.  This  corroborates  the  result  from  the  answers  of  the 
superintendents,  as  shown  in  Table  XIV  where  the  median  increases 
for  the  entire  elementary  group  was  $91.  Except  in  Group  V  there 
is  as  much  or  more  variation  between  geographical  groups  within  any 
size  groups  as  there  is  between  the  size  groups  themselves.  In  all 
groups,  as  shown  in  the  previous  chapter,  the  highest  salaries  are  paid 
in  Group  E  and  the  lowest  in  Group  B. 

In  Study  number  i,  of  Table  LI,  the  median  total  teaching  experi- 
ence was  found  to  decrease  with  the  size  of  the  city.  The  larger  cities 
have  greater  power  to  hold  the  teachers  in  service.  The  median  amount 
of  teaching  experience  ranges  from  practically  7  years  to  10^.  This 
is  a  hrger  figure  than  might  be  expected  from  previous  studies,'  but 
undoubtedly,  the  teachers  who  have  definitely  decided  on  teaching  for 
a  life  work  were  more  concerned  with  the  salary  problem  and  more 
interested  in  returning  the  questionnaires.  The  variation  between  me- 
dian number  of  years  teaching  experience  is  as  great  within  any  size 
group  as  between  groups.  It  does  not  follow  that  Group  E,  where  the 
cities  pay  the  highest  salaries,  always  holds  its  teachers  the  longest.  It 
does  in  only  one  group  of  the  six.    Size  is  a  larger  determining  factor  in 

1  Coffman,    "The    Social    Composition    of    Teaching:    Population."      Teaches    College    Con 
tributions   to   Education,   No.    41. 


E  QUESTIONNAIRE  1 


ACCORDING  1 


o 


IE  AC  HERS'  SALARIES  AM)  SALAR)'  SCHEDULES  71 


length  of  tenture  than  location.  Intermediate  teachers  have  the  longest 
median  experience,  probably  due  to  the  tendency  to  put  the  intermediate 
schools  under  successful  teachers  of  considerable  experience  in  order 
to  insure  the  success  of  the  new  schools.  High  school  teachers  have 
a  shorter  median  length  of  experience  than  elementary  or  intermediate, 
which  about  balances  the  extra  time  spent  by  them  in  securing  the 
additional  preparation  demanded  for  teaching  in  high  schools. 

In  Studies  2a  and  2b,  Table  LI,  on  the  personal  living  expenses 
for  the  years  1917-18  and  1918-19,  it  is  evident  that  the  increase  in  the 
median  cost  of  living  is  greater  in  the  larger  cities  than  in  the  smaller. 
It  is  also  evident  that  a  large  part  of  the  increase  in  salary  received  in 
the  two  years  was  used  for  increast  personal  living  expenses.  In 
Groups  I  and  IV  the  increase  in  median  living  expenses  was  greater 
than  the  median  increase  in  salary.  There  seems  to  be  no  general 
tendency  for  living  expenses  to  have  increast  more  in  any  one  section 
of  the  country  than  another.  The  increase  in  cost  of  living  would 
probably  have  been  shown  to  be  even  higher  had  it  not  been  for  the  fact 
that  quite  a  few  teachers  recorded  their  living  expenses  up  to  the  time 
cf  filling  out  the  questionnaire  and  did  not  so  indicate  it.  These  were 
then  used  as  the  expenses  for  12  months  and  compared  with  other 
statements  for  annual  expenses. 

In  Studies  3a  and  3b  of  Table  LI  the  median  percentages  of  salaries 
spent  for  living  expenses  are  given.  Percentages  are  astonishingly 
even,  with  but  a  slight  increase  in  percentage  spent  as  the  median 
salaries  decrease  in  the  smaller  localities.  This  shows  that  the  decreast 
cost  of  living  in  the  smaller  places  nearly  offsets  the  decreast  salary. 
at  least  so  far  as  the  percentage  spent  is  concerned.  This  is  a  danger- 
c>us  conclusion  from  which  to  get  any  satisfaction.  The  cost  of  living 
is  rapidly  becoming  standardized,  and  the  cost  of  attendance  at  colleges 
and  summer  sessions  is  increasing  in  proportion  to  the  other  increases. 
Even  tho  13  per  cent  of  the  median  salary  for  1917-18  for  Group  Y 
is  left  as  compared  with  the  18  per  cent  for  Group  I,  the  discrepancy 
is  doubled,  in  that  the  13  per  cent  is  on  a  smaller  salary  than  the  18. 
and  yet  the  cost  of  living  and  of  education  and  professional  advance- 
ment is  very  much  the  same  in  both  instances.  The  intermediate  group 
has  a  median  percentage  the  same  as  the  lowest  of  the  elementary 
groups,  which  might  be  expected  from  the  higher  median  salaries  of 
the  intermediate  teachers.  The  same  holds  true  for  the  higher  median 
of  high  school  teachers.  Since  there  is  only  one  instance  in  the  ele- 
mentary groups  where  the  median  percentage  spent  is  under  80  per 
cent,  it  is  a  safe  conclusion  that  in  practically  all  groups  thruout  the 
country  the  teachers  have  a  median  of  less  than  20  per  cent  of  the 
salary  to  spend  for  "recreation,  hooks,  magazines,  travel,  professional 


n  NATIONAL   EDUCATION   ASS0CL4TI0N 

advancement,  savings,  etc."  This  will  at  once  be  recognized  as  much 
too  small.  Practically  no  authorities  on  the  making  of  budgets  give  less 
than  20  per  cent  for  so-called  "higher  life"  and  many  of  them  advocate 
25  and  30  per  cent.  It  seems  obvious  that  teaching,  along  with  the 
other  professions,  should  demand  even  a  higher  percentage  for  these 
items  than  the  ordinary  family  whose  budgets  have  been  made  the 
subject  of  investigation  in  most  of  the  studies. 

Study  4,  Table  LI,  shows  the  increase  or  decrease  in  the  per  cent 
of  salary  used  for  personal  living  expenses  in  1918-19  over  1917-18  to 
be  very  small.  The  largest  median  increase  for  any  size  group  is  but  .8% 
and  the  decrease  1.8%.  It  indicates  that  for  the  majority  of  teachers 
thruout  the  sections,  the  percentage  of  expenditure  in  the  second  year 
was  practically  the  same  as  in  the  first.  This  is  but  a  corroboration  of 
what  would  be  inferred  from  comparing  the  percentages  in  columns 
3a  and  3b.  The  variation  in  the  increase  and  decrease  within  any 
group  is  very  little  more  than  that  between  the  groups.  The  largest 
instance  of  decrease  was  in  Group  BI,  where  there  was  a  5  per  cent 
decrease.  In  the  same  group,  however,  the  salary  increast  in  the  same 
time  almost  20  per  cent,  showing  that  there  was  an  attempt  in  the  city 
from  which  these  figures  were  taken  to  adjust  salaries  to  the  cost  of 
living. 

Studies  5a  and  5b.  Table  LI,  give  the  median  amounts  spent  for 
"recreation,  professional  advancement,  etc.,"  for  the  year  1917-18  and 
1918-19.  Here  again  there  is  surprising  uniformity,  and  an  astonish- 
ingly small  amount  for  the  median  expenditures  in  the  dififerent  groups. 
The  size  of  the  city  does  not  materially  afifect  the  amount  spent  for 
these  items,  except  in  the  two  smallest  groups,  and  here  only  slightly. 
The  highest  median  amount  spent  by  any  group  for  these  items  is  only 
$88  for  the  year.  How  inadequately  must  the  items  of  recreation, 
outside  reading,  professional  advancement,  travel,  philanthropy,  insur- 
ance, savings  and  these  other  necessary  items  have  been  provided  for 
by  the  half  of  the  teachers  in  this  group  who  spent  less  than  $88  on 
all  of  these  items  combined.  A  study  of  the  actual  distributions  of 
these  items  will  show  a  range  between  zero  and  $500,  with  relatively 
few  instances  in  excess  of  $100.  These  figures  offer  a  very  drastic 
criticism  on  existing  salary  conditions,  since  they  show  a  teacher's  utter 
inability  to  care  for  this  important  side  of  her  work  in  an  adequate 
manner. 

Studies  6a  and  6b.  Table  LI,  which  give  the  median  total  expenses 
for  the  years  1917-18  and  1918-19,  show  a  condition  not  very  different 
from  that  developt  in  the  study  of  living  expenses  in  2a  and  2b.  In 
fact,  due  to  the  very  small  expenditure  for  recreation  and  professional 
advancement,  the  total  expenditures  which  are  obtained  bv  adding  the 


lEACHERS'  SALARIES  AXD  SALARY  SCHEDLLES 


amount  spent  for  living  expenses  and  the  amount  spent  for  recreation 
and  professional  advancement  are  in  most  cases  not  so  high  as  they 
should  be.  Here,  as  before,  we  find  the  expenses  for  1918-19  in  all 
cases  increast  over  those  of  the  previous  year  about  as  much  as  the 
salary  was  increast.  A  direct  relation  between  size  of  the  city  and  the 
amount  of  total  expenses  is  repeated. 

A  more  interesting  view  of  this  situation  is  obtained  from  Studies  7a 
and  7b,  Table  LI,  which  give  the  median  percentages  of  the  total  salary 
spent  for  total  "necessary  expenses."  From  these  medians  it  is  seen 
that  the  teachers  who  are  receiving  median  salaries  are  spending  peril- 
ously near  to  100  per  cent  of  their  salary.  If  this  is  true  about  the 
median,  the  condition  must  be  very  bad  for  those  whose  expenses  go 
above  the  median.  There  are  15  instances  during  the  two  years  where 
the  median  expenditure  for  a  group  was  100  per  cent  of  its  income 
or  more,  indicating  that  in  these  15  groups,  half  of  the  teachers  were 
compelled  to  spend  more  than  they  made.  These  statements  may  be 
criticized  from  the  standpoint  that  teachers  ordinarily  are  not  in  debt. 
If,  however,  the  expenses  of  the  summer  have  to  be  borne  by  the 
teacher  rather  than  by  her  family,  the  chances  are  that  she  will,  in  a 
majority  of  cases,  begin  the  year  in  debt.  In  one  of  the  groups  67  per 
cent  of  the  teachers  were  compelled  to  spend  more  than  100  per  cent 
of  their  incomes.  This,  in  a  way,  is  confirming  evidence  of  the  con- 
clusions drawn  from  the  study  of  the  cost  of  "board  and  room"  in 
Chapter  I. 

Study  8  of  Table  LI  gives  the  median  increase  or  decrease  in  per 
cent  of  total  salary  spent  for  total  expenses,  and  shows  a  more  con- 
sistent and  larger  decrease  in  per  cent  of  salary  spent  than  was  shown 
for  living  expenses  in  Study  4.  Other  things  being  equal,  this  may  be 
interpreted  to  mean  that  the  per  cent  of  the  total  salary  spent  for 
recreation,  professional  advancement,  etc.,  was  smaller  in  1918-19  than 
in  1917-18.  Two  elements  probably  cause  this  difference:  first,  the 
curtailment  of  all  expenses  which  were  not  necessary,  both  because  of 
higher  costs  and  in  order  to  invest  in  the  war  loans,  and,  second, 
the  necessity  for  estimating  the  expenses  for  the  coming  summer  as 
to  travel,  self-improvement,  etc.  It  is  noteworthy  that  in  Section  B 
in  all  the  groups,  a  decrease  in  percentage  of  salary  spent  is  shown, 
and  that  the  decrease  compares  very  favorably  with  the  returns  from 
other  wealthier  sections.  This  indicates  a  widespread  tendency  in  cities 
of  all  sizes  in  this  section  to  improve  salaries,  even  tho  they  yet  remain 
relatively  low  when  actual  salaries  are  considered. 

Study  9,  Table  LI,  on  the  median  number  of  years'  schooling  above 
the  8th  grade,  shows  the  median  amount  for  elementary  teachers  to 
be  6  years,   7.5    for   intermediate   teachers,   and   8.3    for   high   school 


74 


NATIONAL  EDUCATION  ASSOCIATION 


teachers.  These  medians  are  a  little  lower,  generally,  than  the  stand- 
ards set  by  the  superintendents  for  election  at  the  present  time,  except 
for  intermediate  teachers.  This  median  is  materially  raised  by  the 
presence  in  the  intermediate  schools  of  a  large  number  of  college 
graduates,  even  tho  the  minimal  requirement  is  set  lower  by  most 
superintendents. 

Studies  loa  and  lob,  Table  LI,  are  very  unsatisfactory,  and,  as 
given,  somewhat  misleading.  The  medians  as  given  represent  the 
median  bonus  received  by  those  teachers  who  received  bonuses  during 
the  year,  and  does  not  show  the  very  large  majority  who  did  not 
receive  any  bonus.  The  medians  as  given  will  have  to  be  studied  in 
comparison  with  Table  LII. 

TABLE  LII 
SUMMARY  OF  BONUSES  RECEIVED  1917-18  AND  1918-19. 
(Data  received  from  answers  given  to  the  questionnaire  to  teachers.) 


Total  number  of 
teachers 

Number  receiving 
no  bonus 

Per  cent  receiving 
a  bonus 

Average    median 
bonus 

1917-18 

1918-19 

1917-18 

1918-19 

1917-18 

1918-19 

1917-18 

1918-19 

Elementari'.  .  . 
Intermediate.  . 
High  School .  . . 

5556 
454 
788 

5556 
466 
811 

4759 
403 
692 

4634 
405 
698 

14.7% 
11.0% 
12.1% 

15.5% 
13.1% 
13.9% 

$24.90 
36.00 
98.40 

$  46.77 

32.50 

101.10 

This  shows  that  85  per  cent  or  more  of  the  teachers  answering  this 
question  did  not  receive  a  bonus.  With  this  fact  in  mind  the  question 
of  bonus  received  is  almost  a  matter  of  no  consideration,  since  even  for 
the  few  teachers  receiving  a  bonus  the  median  sum  is  very  small — not 
exceeding  $74  in  any  group,  except  for  the  high  school  teachers. 
There  seerns  to  be  no  distinct  testimony  for  any  city  size  or  geo- 
graphical group  to  grant  more  or  larger  bonuses  than  the  other  group. 
A  very  slight  tendency  might  be  said  to  exist  in  Group  E.  The 
sporadic  cases  of  granting  bonuses  to  adjust  the  salary  problem  may 
be  considered  as  having  made  almost  no  contribution  when  the  whole 
teaching  population  is  considered.  A  bonus  as  ordinarily  given  to 
teachers  is  a  philanthropically  inspired  and  begrudged  donation  to  an 
underpaid  and  long-suffering  group  of  public  servants,  in  order  to  tide 
them  over  a  period  of  financial  stringency.  It  is  given  without  appre- 
ciation of  the  work  done  or  the  deserved  reward,  and  implies  the  desire 
to  keep  teachers  on  the  present  schedule  rather  than  to  make  a  perma- 
nent advance  in  salary. 

Studies  iia  and  lib  of  Table  LI  give  the  median  "additional 
incomes"  earned  during  1917-18  and  1918-19.  This  additional  income, 
as  askt  for  in  the  questionnaire,  is  for  "tutoring,  evening  school, 
summer  work,  writing,   lecturing,  etc.,"  and  the  medians   given  are 


lEACtlERS-  SALARIES  AM)  SALARY  SCHEUULES 


75 


only  for  those  who  earn  an  additional  income.     The  medians,  as  in 
Studies  loa  and  lob,  must  be  interpreted  in  the  light  of  Table  LIII. 


TABLE    LIII 


SUMMARY  OF  ADDITIONAL  INCOME  EARNED  1917-18  AND  1918-19. 
(Data  received  from  answers  given  to  the  questionnaire  to  teachers) 

Total   number  of 
teachers 

No.  Earning  no  ad- 
ditional income 

Per  cent  Earning  an 
additional  income 

Average    Median 
additional  income 

1917-18 

1918-19 

1917-18 

1918-19 

1917-18 

1918-19 

1917-18 

18- 

Elementary.  .  . 
Intermediate.  . 
High  School.  .  . 

4684 
420 
879 

4801 
460 
909 

3891 
337 
559 

4205 
406 
663 

16.9% 
19.8% 
36.4% 

12.4% 
11.7% 
24.6% 

$91.38 
133.75 
122.30 

$87.96 
63.33 
98.33 

According  to  these  returns  only  one  teacher  in  five  has  any  addi- 
tional income,  and  for  this  one-fifth  the  median  amount  is  below  $ioo 
in  most  of  the  groups.  From  this  it  would  seem  that  a  majority  of 
teachers  give  their  entire  time  to  teaching  and  use  the  summer  to  rest 
and  regain  energy  and  enthusiasm.  An  examination  of  the  salaries 
of  the  teachers  earning  additional  incomes  will  show  a  wide  range  in 
the  distribution,  but  does  not  show  the  usual  bunching  of  cases  about 
the  median  point.  There  are  in  many  of  the  groups  two  modes,  one 
below  the  median  with  more  cases  in  the  $500  and  $600  salary  groups, 
and  the  other  above  the  median,  centering  around  $1,200.  The  first 
group  is  probably  driven  to  lucrative  occupations  during  the  vacations 
by  force  of  necessity.  The  second  is  probably  due  to  the  spur  of 
ambition  and  the  more  numerous  opportunities  which  come  to  the 
teachers  receiving  the  higher  salaries  because  of  their  greater  ability 
or  their  better  preparation.  There  seem  to  be  no  distinct  sectional 
influences  upon  the  matter  of  additional  incomes.  It  is  more  truly  an 
individual  matter  in  most  cases. 

Study  12  shows  the  median  age  of  teachers.  The  size  of  the  city 
affects  the  median  age,  which  decreases  as  the  size  decreases,  due 
undoubtedly  to  the  greater  prevalence  of  tenure  of  office  regulations 
in  the  larger  cities.  There  is  no  evidence  of  geographical  influence  upon 
the  median  age  of  teachers.  If  the  median  age  in  the  size  groups  be 
considered  in  relation  to  the  median  experience,  they  show  that  the 
teachers,  as  indicated  by  the  medians,  began  teaching  about  their  20th 
year  of  age.  This  does  not  allow  time  for  much  maturity,  nor  for 
professional  preparation.  Since  practically  all  of  the  teachers  in  the 
elementary  and  intermediate  schools  are  women,  it  is  possible  to  com- 
pare the  results  here  with  those  obtained  by  Coffman  ^  in  1911.  At 
that  time  he  found  "the  typical  American  female  teacher  is  twenty-four 

1  Coffman.  "The  Social  Composition  of  the  Teaching  Population."  Teachers  College 
Contribution    to    Education,    No.    41. 


76 


.\A'J'JU.\AL   EDL'CATIOX   .ISSOCIAflOA 


years  of  age,  having  entered  teaching  at  the  early  part  of  her  nineteenth 
year,  when  she  had  received  but  four  years'  training  beyond  the  ele- 
mentary schools."  If  the  typical  teacher  is  determined  in  the  same 
way  from  the  medians  found  in  this  study,  an  advance  is  found  in  all 
three  items.  The  median  age  is  three  or  more  years  more  and  the 
length  of  experience  and  the  amount  of  preparation  are  both  over 
two  years  higher.  Since  Cofifman's  data  was  obtained  principally  from 
rural  teachers,  while  the  data  of  this  study  is  more  truly  representative 
of  city  conditions,  this  difference  can  not  be  construed  as  an  advance 
but  rather  as  a  contrast  between  urban  and  rural  conditions. 

Studies  13  and  14  were  made,  but  the  results  were  not  of  a  nature 
to  yield  to  the  same  treatment  as  the  other  items  studied.  -The  question 
of  how  many  teachers  have  others  dependent  upon  them  is  a  much 
discust  one,  but  few  studies  of  existing  conditions  have  been  made. 
In  tabulating  the  answers  it  was  necessary  to  evaluate  the  burden 
represented  by  having  one  person  "partially  dependent"  as  compared 
with  "one  person  entirely  dependent."  The  judgments  of  several 
school  men  were  secured,  and  it  was  finally  arbitrarily  decided  that, 
as  ordinarily  reported,  one  "partial  dependent"  would  represent  about 
one-fifth  of  the  financial  burden  of  an  "entire  dependent."  This  was 
applied  only  when  a  teacher  reported  persons  both  entirely  and  par- 
tially dependent,  e.  g.  a  teacher  reporting  2  persons  entirely  dependent, 
and  4  persons  partially  dependent,  was  listed  as  having  3  persons  en- 
tirely dependent  (fractions  were  used  to  the  nearest  unit).  In  this 
way  no  teacher  was  recorded  more  than  once.  The  results  of  the 
answers  are  given  in  Table  LIV,  in  the  percentages  of  teachers  having 
others  dependent  upon  them.  The  returns  are  arranged  by  size  groups, 
and  the  relation  of  dependents  to  salary  received  may  be  inferred  from 
the  median  salaries  of  the  groups. 


TABLE   LIV 

PERCENTAGES  OF  TEACHER.S  SUPPORTING  OTHERS,  EITHER  ENTIRELY   OR 

PARTIALLY. 

Arranged  for  the  Size  Groups  and  for  School  Divisions. 


Total  % 

%  having 

%  having 

%  having 

%  having 

%  having 

having 

no 

one 

2  or  more 

one 

2  or  more 

dependent* 

de- 

entirely 

entirely 

partly 

partly 

either 

pendents 

dependent 

dependent 

dependent 

dependent 

entirely  or 
partially 

Elementary: 

Group  I 

35.1 

17.2 

12.0 

18.0 

17.6 

64.9 

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3.7 

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36.8 

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16.6 

11.5 

41.8 

H.  S.  Men  (all  groups) 

12.3 

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3.5 

10.2 

87.7 

TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  77 

This  table  answers  rather  definitely  the  question  whether  teachers 
as  a  class  have  others  dependent  upon  them.  Forty-six  per  cent  of 
elementary  teachers,  43  per  cent  of  intermediate  and  42  per  cent  of 
high  school  teachers  have  others  either  entirely  or  partially  dependent 
upon  them.  More  than  half  of  the  dependents  reported  represent 
partial  dependents,  which  does  not  make  the  financial  burden  as  heavy 
to  carry  as  the  percentages  might  indicate.  It  does,  nevertheless,  make 
it  evident  that  teachers  as  a  class  are  not  free  from  the  responsibilities 
of  having  others  dependent  upon  them  for  support.  There  seems  to 
be  no  other  explanation  for  the  regular  decrease  in  the  percentage  of 
teachers  having  dependents,  shown  in  the  last  column  of  Table  LIV, 
than  that  the  corresponding  decrease  in  salaries  as  the  size  of  the  cities 
decrease  makes  the  support  of  others  financially  impossible.  Every 
other  column  in  the  table  adds  weight  to  the  same  conclusion.  Not 
enough  men  reported  from  the  elementary  and  intermediate  schools  to 
make  the  comparisons  possible,  but  in  the  1,310  replies  from  high 
schools,  775  women  answered  the  question  on  dependents,  and  285 
men.  This  made  possible  the  separation  of  the  men  for  a  separate 
tabulation.  The  results  show  that  only  12  per  cent  of  the  men  who 
reported  from  high  schools  were  not  supporting  dependents.  The  57 
per  cent  of  men  teachers  in  the  high  school  who  are  supporting  families 
of  "two  or  more"  dependents  indicates  that  men  teachers  will  under- 
take family  responsibilities  if  the  salary  will  in  any  way  permit. 
Seventy-four  per  cent  of  the  men  have  one  or  more  people  entirely 
dependent  upon  them.  This  is  from  three  to  six  times  as  large  as  the 
percentage  in  any  other  group.  The  next  highest  percentages  are  in 
Group  I,  where  the  salaries  are  also  higher.  It  is  obvious  from  Table 
XLVII  that  the  present  salary  schedules  are  directly  or  indirectly 
responsible  for  the  rapidly  declining  number  of  men  in  the  work  of 
teaching. 

PART  II. 

Salary  Situation  as  Shown  by  Coefficients  of  Correlation  Betv^^een 

the  Items  Studied  and  the  Salaries  Received. 

Another  way  of  showing  how  the  salaries  of  the  teachers  in  the 
various  groups  were  influenst  by  and  related  to  the  items  studied  in 
Part  I  of  this  chapter,  is  to  express  the  closeness  of  the  relation  (or 
"going  togetherness")  of  the  two  items  under  consideration  by  a  single 
index  known  as  the  coefficient  of  correlation  (represented  by  "r"). 
Those  used  in  this  chapter  were  found  from  the  651  correlation  tables 
similar  to  Table  L  by  a  modification  of  "Sheppard's  Method  of  Unlike 
Signs."'      Coefficients  of  correlation   found  bv  this  method  are   in  a 


'  For  description  of  method  used  see  Appendix   TIT. 


78  NATIONAL  EDUCATION  ASSOCIATION 

way  only  approximations,  but  they  are  reliable  enough  to  show  the 
presence  or  absence  of  a  distinct  tendency  when  any  such  exists. 
Where  the  distributions  were  irregular  in  any  way  or  heavily  buncht 
upon  the  median  step  the  coefficients  were  checkt  by  using  Pearson's 
"Coefficient  of  mean  square  contingency."^  In  this  way  it  was  shown 
that  with  the  data  used,  the  modification  of  Sheppard's  Formula  gave 
results  which  were  reliable  enough  for  detecting  tendencies.  They  are, 
however,  not  reliable  enough  to  make  comparisons  betzveen  two  groups 
when  the  "r'"  values  are  for  example  .10  and  .25  or  even  where  greater 
differences  exist. 

In  tables  LV  and  LVI  these  coefficients  are  arranged  according 
to  groups,  school  divisions  and  items  studied  and  give  the  results  in 
a  form  to  facilitate  easy  comparison  with  the  data^  in  the  companion 
table  LI  of  Part  I. 

Only  general  and  obvious  conclusions  will  be  made  from  the  data 
presented  in  Tables  LV  and  LVI. 

Study  I,  Table  LV.  A  high  coefficient  of  correlation  exists 
between  "total  teaching  experience"  and  "total  salary  received"  during 
1918  and  1919.  The  coefficient  decreases  with  the  size  of  the  city 
and  is  rather  uniform  as  far  as  geographical  groups  are  concerned. 
This  confirms  the  statement  that  the  larger  cities  hold  their  teachers 
longer  and  pay  them  better. 

Studies  2a  and  2b,  Table  LV,  show  a  markt  positive  correlation 
between  "amount  spent  for  personal  living  expenses"  and  "total  salary 
received."  There  is  no  consistent  variation  due  to  geographical  loca- 
tion or  to  size  of  cities.  The  coefficients  indicate  that  the  larger  the 
salary  a  teacher  receives,  the  more  she  spends  for  personal  living 
expenses,  which  in  turn  could  be  made  to  show  that  the  majority  of 
teachers  are  living  on  a  level  lower  than  is  desirable  for  them,  both 
from  the  standpoint  of  personal  desire  and  efficient  work.  As  a  result, 
an  increase  in  salary  goes  merely  to  provide  more  comfortable  room 
or  more  desirable  board,  more  prompt  medical  attention  and  more 
adequate  supply  of  necessary  clothing,  rather  than  to  savings,  profes- 
sional advancement,  recreation,  etc. 

Studies  3a  and  3b,  Table  LV,  give  very  small  negative  coefficients 
between  per  cent  of  "total  salary  spent  for  personal  living  expenses" 
and  "total  salary  received."  This  indicates  a  slight  tendency,  which  is 
consistent  thruout  the  size  groups,  for  teachers  receiving  the  highest 
salaries  to  spend  a  smaller  percentage  of  the  salary  for  living  expenses. 
The  very  small  coefficients  indicate  that  there  is  so  little  lee-way 
between  the  salary  received  and  the  percentage  of  that  salary  spent 

^  For  description  of  this  method  and  the  resuhs  of  its  use  see  Appendix  III. 
litems   10,   II,  and    14  are  not  included   in   this   table  as   the  returns  were  either  too   fexv 
to   be  used  or  not  in   a   form  to  he  readily  correlated. 


■^  TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  79 

for  living  expenses  that  even  differences  of  $200  or  $300  between 
groups  do  not  influence  the  coefficients. 

Study  4,  Table  LV,  on  the  relation  of  the  increase  or  decrease 
of  the  "per  cent  of  salary  spent  for  living  expenses"  in  1918-19  over 
those  of  1917-18  and  the  "total  salary  received"  developt  absolutely 
no  consistent  relationship.  In  other  words  it  was  a  matter  of  pure 
c'lance  whether  those  receiving  higher  salaries  increast  or  decreast 
the  percentage  of  their  salaries  spent  for  living  expenses. 

Studies  5a  and  5b,  Table  LV,  result  in  insignificant  positive  coeffi- 
cients between  the  "amount  spent  for  recreation,  professional  advance- 
ment, etc.,"  and  "total  salary  received,"  which  would  indicate  that  those 
receiving  higher  salaries  not  only  are  able  to  spend  more  on  self 
improvement,  but  are  slightly  more  apt  to  do  so. 

Studies  6a,  6b,  7a,  7b,  and  8,  Table  LVI,  produce  coefficients  which 
substantiate  the  findings  of  studies  2a,  2b,  3a,  3b,  and  4  except  that  if 
possible  they  show  even  more  clearly  that  under  present  conditions,  it 
is  necessary  for  a  teacher  to  spend  practically  all  of  her  salary  for 
her  "total  necessary  expenses,"  regardless  of  how  much  that  salary 
is  or  where  it  is  received. 

Study  9,  Table  LVI,  for  the  relation  between  "total  numbers  of 
years  schooling  above  the  8th  grade"  and  "total  salary"  furnishes  a 
decided  upset  for  any  preconceived  notion  that  additional  schooling 
is  always  rewarded  by  additional  salary.  The  presence  of  negative 
( — )  coefficients,  some  of  them  large  enough  to  indicate  strong  cor- 
relation in  many  of  the  groups,  shows  that  for  those  groups  the 
teachers  receiving  salaries  above  the  medians  tend  to  have  "years  of 
schooling"  below  the  median  amount.  This  is  truer  in  the  larger 
cities,  where  the  higher  salaries  are  received  by  teachers  of  longer 
experience  who  entered  when  standards  of  preparation  were  lower, 
while  the  younger  teachers  who  have  prepared  more  thoroly  are 
teaching  at  beginners'  pay.  There  is  no  section  where  any  consistent 
correlation  is  shown,  and  except  for  cities  in  Size  Groups  I  and  II, 
the  average  of  the  coefficients  is  so  low  that  "mere  chance"  is  the 
governing  rule.  This,  however,  shows  a  condition  which  is  worth 
the  serious  consideration  of  teachers  and  school  men,  because  addi- 
tional schooling  should  represent  an  investment  with  more  certain 
returns  than  "pure  chance." 

Study  12,  Table  LVI,  gives  the  coefficients  of  correlation  for 
teachers'  "age"  and  "total  salary  received"  (1918-19)  and  shows  a 
distinct  relation  between  age  and  salary.  It  pays  to  grow  old  in  the 
work  of  teaching,  and  especially  in  the  larger  cities.  The  average 
of  the  coefficients  for  size  groups  decreases  as  the  size  of  the  cities 
decreases,  but  the   "r"   value   is  large  enough  to   be   significant  even 


80 


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in  the  groups  of   smaller  cities.     The  correlation   is   consistent  thru 
the   several  geographical   groups. 

CONCLUSIONS— CHAPTER  II 
General 

1.  The  returns  from  the  teachers'  questionnaires  show  the  salaries  to  be 
about  the  same  in  almost  all  groups  as  that  given  in  Chapter  I  from  Superin- 
tendents' Reports. 

2.  Decrea.se  in  the  size  of  the  city  is  accompanied  by  decrease  in  the  amount 
of    the    salary.  - 

3.  Sectional  differences  are  found  to  the  same  extent  as  in  Chapter  I. 

4.  Salaries  of  teachers  are  entirely  inadequate  to  meet  the  standards 
demanded  and  the  economic  conditions  existing  during  the  two  years  studied. 

5.  As  judged  by  the  answers  of  teachers,  they  are  meeting  the  requirements 
outlined  in  the  reports  of  superintendents,  they  are  making  more  adequate 
preparation  for  their  work  and  they  are  staying  in  the  work  longer.  These 
are  signs  that  teaching  is  tending  toward  professionalization. 

Specific:    Study  i. — Total  Teaching  Experience 

a.  The  larger  the  cities  the  longer  the  teaching  experience. 

b.  Location   has   less   influence   on   experience   than   size   of   city. 

c.  There  is  a  high  correlation  between  salary  received  and  length  of 
experience.      It    decreases    with    the    size    of    the    cities. 

Study  2a  and  ab — Personal  Living  Expenses 

a.  Living  expenses  decrease  as  the  size  of  the  cities  decrease  but  not  as 
rapidly  as  the   salaries  paid. 

b.  Differences  in  amount  of  personal  living  expenses  due  to  location  arc 
less  than  those  due  to  city  size.  They  are  generally  higher  vi'here  the  salaries 
are    higher. 

c.  Personal  living  expenses  increast  almost  as  much  as  salaries  increast 
between  1917-18  and  1918-19. 

d.  There  is  a  distinct  positive  correlation  between  the  amount  spent  for 
living  expenses  and  salary  received.  It  is  not  affected  by  size  or  location  of 
cities. 

Study  3a  and  3b — Per  Cent  of  Salary  Spent  For  Personal  Living  Expenses 

a.  Teachers  are  spending  five-sixths  of  their  salaries  for  necessary  per- 
sonal   living    expenses. 

b.  There  is  only  a  slight  increase  in  per  cent  spent  as  the  cities  decrease 
and   as   the   salaries   become   consequently   smaller. 

c.  There  is  a  small  negative  correlation  between  the  amount  of  the  salary 
and  the  per  cent  spent  for  living  expenses,  indicating  that  the  h-'gher  salaries 
spend  slightly  less  for  living  expenses.  The  fact  that  the  correlation  is  so 
slight,  indicates  that  all  salaries  are  so  low  that  even  the  higher  ones  do  not 
have  a  margin  for  saving,  but  are  all  needed  for  necessary  expenses. 

Study  4 — Increase  or  Decrease  in  Per  Cent  of  Salary  Spent  For  Living 
Expenses  in  1918-19  Over  1917-18 
a.    There  was  practically  no  increase  or   decrease   in   1918-19  over   1917-18. 
This  indicates  that  the  increases  given  to  teachers  were  not  more  than  enough 


TEACHERS'  SALARIES  AM)  SALARY  SCHEVLLES  85 

to  meet   the   increases   in   living  expenses.     This   was   true   for   all   groups,   size 
and  geographical. 

b.  There  is  no  correlation  between  salary  received  and  an  increase  or 
decrease  in  per  cent  spent  by   individual  teachers  on   living  expenses. 

Study   5a   and   5b — Amount   Spent    For   Recreation,   Professional   Advance- 
ment, etc. 

a.  The  median  amount  spent  by  teachers  per  year  for  recreation,  profes- 
sional advancement  etc.  is  less  than  $75.  On  the  basis  of  25  per  cent  for 
"higher  life"  this  much  should  be  spent  from  a  salary  of  $300. 

b.  $75  per  year  might  well  be  spent  on  periodicals  and  library  additions 
alone,  and  is  entirely  too  small  for  either  recreation  or  professional  advance- 
ment (other  than  reading). 

c.  The  amount  spent  for  these  items  is  uniformly  small  in  all  groups,  both 
size  and  geographical. 

d.  Only  an  insignificant  positive  correlation  exists  between  the  salary 
received  by   teachers   and   the   amount   spent   for   these   items. 

Study  6a  and  6b — Total  Expenses 

a.  Total   expenses   decrease  as  the  size  of   the   cities   decrease. 

b.  Between  groups,  total  expenses  vary  directly  in  proportion  to  the  salary 
paid. 

c.  For  individual  teachers,  the  higher  salary  the  more  the  total  necessary 
expenses.     This   is   true    for   all   groups. 

Study  7a  and  7b — Per  Cent  of  Salary  Spent  For  Total  Expenses 

a.  In  85'>"''  of  the  groups  during  the  two  years  the  median  per  cent  of 
salary  spent  for  total  expenses  was  90'^  or  over.  (Efficiency  and  budget  experts 
give  I07c  as  the  least  margin  for  net  savings). 

b.  A  noticeable  negative  correlation  exists  between  salary  received  and 
per  cent  spent  for  necessary  expenses,  indicating  that  the  smaller  the  salary 
the  larger  the  per  cent  of  it  used  for  these  expenses. 

Study  8 — Increase  or  Decrease  in  the  Per  Cent  of  Salary  Spent  for  Total 
Expenses  in  1918-19  Over  1917-18 

a.  Increases  given  to  teachers  and  curtailment  of  expenses  for  recreation 
and  professional  advancement  produced  a  small  decrease  in  the  per  cent  spent 
for  necessary  expenses. 

b.  There  is  no  correlation  between  salary  received  and  an  increase  or 
decrease  in  the  per  cent  spent  for  necessary  expenses  in   1918-19  over   1917-18. 

Study  9 — Years  of  Schooling  Above  the  Eighth  Grade 

a  The  median  number  of  years  schooling  above  the  8th  grade  is  over 
six,  seven  and  eight  for  the  elementary,  intermediate,  and  high  school  respec- 
tively. 

b.  From  the  negative  coefficients  found  between  salary  and  schooling, 
especially  in  the  two  largest  groups,  it  would  seem  that  there  is  an  association 
of  higher  salaries  with  fewer  years  of  schooling. 


86  NATIONAL  EDUCATION  ASSOCIATION 

Study  loa  and  lob — Bonus  Received 

a.  Over  85%  of  the  teachers  reported  receiving  no  bonus. 

b.  The  average  bonus  of  the  few  teachers  receiving  them  during  the  two 
years  would  not  exceed  $35, (Elementary  and  Intermediate). 

c.  The  granting  of  bonuses   is   a  temporary   adjustment   and    was   resorted 
to  only  in  a  very  few  cases. 

Study  iia  and  iib — Additional  Income  Earned 

a.  Only  about  20%  of  the  teachers  reporting  earned  any  additional  income. 

b.  For  the  20%  earning  additional  income  the  average  amount  earned  would 
not  exceed  $100. 

Study  12 — Age  of  Teachers 

a.    The  median  age  for  teachers  increases  as  the  size  of  the  city  increases, 
b. .  The  median  age  of  teachers  is  approximately  30. 

c.  Teachers    are    more    seriously   preparing    themselves    for    the    work    of 
teaching  and  are  tending  to  stay  in  the   work  longer. 

d.  There    is    a    distinct    correlation    between    age    and    salary    received. 
The  older  teachers  are  more  apt  to  receive  the  higher  salaries. 

Study  13  and  14 — Dependents  Supported  by  Teachers 

a.  A  larger  percentage  of  teachers  support  dependents  as  the  size  of  the 
city  increases  with  its  accompanyingly  larger  salary. 

b.  Individual  teachers   support  more  dependents   in   the   larger  cities   than 
in    the    smaller   places. 

c.  About  the  same  percentage  of  women  teachers  report  dependents  in  each 
of  the  divisions,   elementary,  intermediate  and  high  school. 

d.  Among  high  school  teachers,  a  much  larger  per  cent  of  men   support 
dependents  than  do  the  women. 

e.  Nearly  60%  of  the  men  high  school  teachers   support   families  of  two 
or  more  entire  dependents. 


CHAPTER  III. 

The  Salary  Situation  in  the  United  State  as  Shown  by  Letters  From 
State  Superintendents 

As  a  result  of  the  National  Education  Association's  campaign 
and  the  sharp  realization  on  the  part  of  teachers  of  the  need  for  better 
salaries,  there  was  almost  nation-wide  agitation  on  the  question  dur- 
ing 1918-19.  In  order  that  teachers  may  have  the  benefit  of  knowing 
what  has  been  considered  and  what  has  been  accomplisht  by  the 
legislatures  of  the  various  states,  a  letter  was  sent  by  President  Geo. 
D.  Strayer  to  State  Commissioners  and  Superintendents  of  Public 
Instruction,  asking  them  to  report  any  bills  on  the  question  of  teachers' 
salaries  which  were  past  by  their  State  Legislatures.  They  were 
askt  to  report  any  legislation  then  pending  as  well  as  any  noteworthy 
actions  by  local  school  boards  in  meeting  the  situation.  Answers 
were  received  from  37  states,  and  will  be  arranged  in  the  same  geo- 
graphical groups  which  have  been  used  in  the  remainder  of  the  study. 

Group  A — Connecticut 

Connecticut  proposed  the  granting  of  $3.00  per  pupil  in  average 
attendance.  This  would  bring  a  material  increase  to  salaries,  but  has 
not  yet  been  approved  by  the  Governor,  because  all  of  the  increase 
v/ould  not  go  to  teachers'  salaries.  Another  bill  was  proposed  which 
would  give  state  aid  to  districts  in  proportion  to  their  valuation,  so 
that  the  state  would  carry  75  per  cent  of  teachers'  wages  for  some  of 
the  smaller  places,  and  from,  that  down  to  20  per  cent.  Secretary 
Hines  writes  "teachers'  salaries  in  this  state  are  very  generally  increas- 
ing from  10  to  30  per  cent.  We  anticipate  a  state  increase  of  15  to  20 
per  cent." 

Delaware 

A  New  School  Code  was  establisht  for  Delaware,  granting  material 
increases  in  the  salaries  of  teachers.  State  Commissioner  Spaid 
reports  that  "the  State  makes  an  annual  appropriation  to  cover  the 
entire  expenses,  including  railroad  fare,  of  the  teachers  who  wish  to 
attend  summer  school  for  a  period  of  six  weeks  within  the  State,  and 
gives  to  certain  other  teachers  a  lump  sum  of  $50.00  to  help  defray 
their  expenses  at  any  standard  summer  school  without  the  State." 

Massachusetts 

Commissioner  Payson  Smith  of  Massachusetts  is  strongly  support- 
ing a  bill  now  pending  in  the  State  Legislation  to  provide  state 
subsidies  for  teachers.  For  each  person  employed  for  full-time  service 
for  12  months  as  superintendents  of  schools,  the  city  or  tf)\vn  shall  be 

X7 


88  NATIONAL  EDUCATION   ASSOCIATION 

reimbvirst  by  $750  if  the  superintendent's  salary  is  not  less  than  $1,800, 
and  reimburst  by  $500  if  the  salary  is  not  less  than  $1,500.  For 
teachers  employed  for  full  time,  the  city  or  town  shall  be  reimburst 
by  $200  for  each  teacher  having  received  a  salary  not  less  than  $850 : 
$150  for  each  teacher  having  received  a  salary  not  less  than  $750 
(with  limiting  conditions  upon  professional  training,  etc.)  and  $100 
for  each  person  having  received  a  salary  of  not  less  than  $650.  Sub- 
sidies for  part-time  superintendents  and  teachers  will  be  paid  accord- 
ing to  the  above  plan,  and  in  proportion  to  the  time  served.  Provi- 
sion is  also  made  in  the  bill  to  provide  supplementary  reimbursements 
according  to  the  per  pupil  valuation  of  the  different  cities  or  towns, 
ranging  from  $300  for  per  pupil  valuation  of  less  than  $2,000  to  $50 
if  the  per  pupil  valuation  is  less  than  $4,500.  but  not  less  than  $4,000, 
with  the  intermediate  steps  in  proportion. 

New  Hampshire 

New  Hampshire  past  a  bill  providing  for  the  establishment  of  a 
State  Board  of  Education  and  the  standardization  of  teachers'  salaries. 
Deputy  Commissioner  of  Education,  Harriet  L.  Huntree,  says  "there 
is  no  definite  statement  of  a  minimum  salary.  It  is  generally  under- 
stood, however,  that  the  rural  school  teachers  will  receive  at  least  a 
minimum  salary  of  $15.00  a  week,  but  no  legislation  so  states." 

New  York 

One  of  the  most  significant  pieces  of  salary  legislation,  because 
of  the  standards  set  and  the  number -of  teachers  involved,  was  the 
state- wide  teachers'  bill  past  by  New  York.  For  New  York  City  a 
minimum  wage  for  teachers  of  kindergarten  and  the  first  six  grades  of 
$1,005  ^s  provided  with  a  maximum  of  $2,160.  In  grades  7,  8  and  g. 
the  minimum  becomes  $1,350  and  the  maximum  $2,700.  In  high 
school  salaries  of  regular  teachers  range  from  $1,350  to  $3,150.  First 
assistants  in  high  schools  begin  at  $2,650,  and  reach  a  maximum  of 
$3,650.  For  cities  of  the  first  class,  with  populations  less  than  one 
million,  the  minimal  salary  is  set  at  $800  for  elementary  teachers,  and 
$1,200  for  high  school  teachers.  For  cities  of  the  second  class  the 
elementary  minimum  is  $800  and  the  high  school  minimum  is  $1,000. 
The  bill  also  provides  that  every  school  district  shall  make  a  salary 
schedule  providing  in  districts  of  the  first  and  second  class,  at  least 
eight  annual  increments  above  the  minimal  salary  set. 

Pennsylvania 

The  "Woodruff  Salary  Bill"  was  past  at  the  last  session  of  the 
State  Legislature.     This  bill  provided  for  a  general  increase  of  teaeli- 


TEACHERS'  SALARIES  ASD  SALARY  SCHEDULES  89 

ers'  salaries  thruout  the  State  and,  according  to  Acting  Superintendent 
Koch,  has  tb.e  hearty  support  of  teachers  and  of  the  people. 

Rhode  Island 

Commissioner  Ranger  reports  that  the  "Rhode  Island  General 
Assembly  enacted  legislation  that  aims  to  raise  the  teachers'  minimum 
salary  from  $400  to  $500.  The  new  act  is  not  mandatory  in  establish- 
ing the  $500  minimum.  It  offers  to  towns  that  increase  salaries 
previously  lower  than  $500,  one-half  of  any  increase  not  exceeding  one- 
half  the  difference  between  the  salary  previously  paid  and  $500." 
"Most  of  our  school  committees  have  increast  salaries  during  the 
current  school  year  and  several  have  increases  for  next  year  under 
consideration." 

Group  B — Alabama 

Superintendent  Dowell  writes  that  "there  is  a  general  sentiment 
favorable  to  the  increase  of  salaries,  but  no  bill  has  l)een  presented 
to  the  Legislature,  and  so  far  as  I  know  none  has  been  prepared.  It 
may  be  stated  that  all  boards  of  education  are  prepared  to  increase 
salaries  to  the  limit  of  available  funds." 

Arkansas 

Superintendent  Bond  reports  that  "Our  Recent  Legislature  did  not 
pass  any  special  legislation  affecting  teachers'  salaries.  I  may  say 
in  this  connection  that  our  annual  school  election  was  held  recently. 
From  reports  coming  into  this  office,  it  seems  that  practically  all  dis- 
tricts, both  urban  and  rural,  are  voting  the  full  tax  limit."  This  is 
the  result  of  a  vigorous  campaign  in  the  interest  of  increast  local  taxes 
and  higher  salaries  which  was  conducted  by  the  State  Department  of 
Arkansas  during  the  last  year. 

Florida 

No  legislation  was  enacted  in  Florida  at  the  last  session  on  the 
subject  of  teachers'  salaries.  State  Superintendent  Sheats  thinks 
"County  Boards  generally,  thruout  the  State,  are  making  strenuous 
efforts  to  raise  salaries.  Some  have  raised  them  10  per  cent,  some 
as  much  as  25  per  cent,  and  others  have  raised  them  higher.  I  will 
say  that  nearly  every  County  Board  in  the  State  is  raising  these  salaries 
of  teachers  all  their  financies  will  possibly  warrant." 

Georgia 

Several  bills  on  teachers'  salaries,  as  well  as  other  educational  sub- 
jects, were  pending  in  the  State  Legislature  at  the  time  of  Superinten- 
dent Brittain's  letter.  The  Forty-seventh  Annual  Report  of  the 
Department  of  Education  to  the  General   Assembly  of  the   State  of 


90  NATIONAL  EDUCATION  ASSOCIATION 

Georgia  gives  many  interesting  facts  relative  to  the  salary  problem  in 
that  State.  It  gives  the  following  average  monthly  salaries  paid  during 
1917-18: 

Grammar  Grades 

1917  1918 

Average  monthly  salary  paid  white  male  teachers $63.00  $70.00 

Average  monthly  salary  paid  white  female  teachers 47.12  52.36 

Average  monthly  salary  paid  colored  male  teachers 31.61  34.72 

Average  monthly  salary  paid  colored    female   teachers 22.73  26.12 

High  School  Grades 

1917  1918 

Average  monthly  salary  paid  white  male  teachers $101.00  $109.75 

Average  monthly  salary  paid  white   female  teachers 65.00  70.61 

Average  monthly  salary  paid  colored  male  teachers 46.71  51.87 

Average  monthly  salary  paid  colored  female  teachers 28.63  31.77 

From  the  same  report  we  learn  that  "Thousands  of  the  best  and 
most  energetic  men  and  women  left  the  school  room  at  the  call  of  busi- 
ness and  for  much  larger  salaries."  This  shows  the  acuteness  of  the 
salary  problem  in  Georgia  brought  about  by  the  fact  that  the  land  is 
assest  at  about  one-fifth  of  its  value,  and  that  the  amount  of  per 
capita  tax  for  school  purposes  is  the  fourth  lowest  in  the  United  States. 
A  bill  is  also  pending  to  provide  for  prompt  payment  of  teachers  with- 
out having  the  salaries  which  average  but  a  little  over  $300  discounted. 
Schools  and  teachers  lose  $50,000  annually  by  having  their  warrants 
discounted. 

Kentucky 

Superintendent  Gilbert  states  that  the  minimal  salary  of  $50  a 
month  was  establisht  for  first  class  rural  school  teachers,  and  that 
several  city  Boards  of  Education  within  the  State  are  very  materially 
increasing  their  salaries.  The  Board  of  Education  of  Louisville,  in 
order  to  insure  a  supply  of  teachers  to  begin  the  year,  increast  the 
salaries  by  from  8  to  33  per  cent.  These  increases  were  graduated 
inversely  according  to  the  salaries  received. 

Louisiana 

Superintendent  Harris  states  that  the  Constitution  w'as  amended  in 
the  fall  of  1918  in  a  way  to  very  materially  increase  the  school  funds. 
Much  of  this  increase  would  go  toward  the  bettering  of  salaries.  A 
suggestive  schedule  of  salaries  for  teachers  was  adopted,  which  will 
be  used  as  the  basis  for  the  fixing  of  teachers'  salaries  for  the  session 
of  1919-20.  Salaries  outlined  are  minimum,  and  in  perhaps  a  majority 
of  the  parishes  the  annual  salaries  paid  will  range  considerably  higher. 
The  schedule  for  elementary  grade  teachers  is  as  follows : 

1.    Graduates  of  standard  normal  schools:  the  first  year  of  teaching  expe- 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  91 

rience,  $70  a  month;  second  year,  $75;  third  year,  $80;   fourth  year,  $85;  fifth 
year,  $90;  eleventh  year  and  thereafter,  $100. 

2.  Teachers  holding  first  grade  certificates,  $10  a  month  less. 

3.  Teachers  holding  second  grade  certificates :  $50  a  month  without  any 
annual  increases. 

4.  Teachers  holding  third  grade  certificates :  $40  a  month  without  any 
annual  increases. 

Mississippi 

No  legislation  has  been  recently  past  in  Mississippi.  Superinten- 
dent Bond  is  hopeful  that  the  next  Legislature  will  more  adequately 
provide  for  teachers'  salaries.     He  states  that 

"Some  of  our  Local  Boards  of  Trustees  have  made  $1,200  a  year  the 
minimum  for  grade  and  high  school  teachers.  There  is  a  tendency  to  put  all 
such  teachers  on  a  twelve  months  salary  basis,  giving  them  thirty  days  oflf  dur- 
ing the  year,  and  employing  them  for  half  time  during  the  rest  of  the  time  the 
school  is  not  in  session,  to  coach  all  those  students  that  failed  to  pass  on  the 
last  session  of  work." 

North  Carolina 

State  Superintendent  Brooks  reports  three  educational  advances 
for  North  Carolina,  "The  six  months  minimum  school  law,"  "The 
County  Budget"  and  "The  Minimum  Salary  Law."  This  law  provides 
that  a  lo  per  cent  increase  in  the  salaries  of  high  school  teachers  is 
given,  with  the  provision  that  nothing  in  this  section  shall  make  it  com- 
pulsory upon  the  County  Board  of  Education  to  fix  the  monthly  salaries 
of  high  school  teachers  higher  than  $75  a  month.  It  also  provides  that 
in  complying  with  the  requirements  that  budgets  be  prepared,  that 
increases  should  be  granted  teachers  ranging  from  25  per  cent  to  10 
per  cent,  depending  upon  the  work  done  and  certificate  held.  It  was, 
however,  provided  that  nothing  in  this  section  shall  make  it  compulsory 
upon  the  County  Board  of  Education  to  fix  the  monthly  salaries  of 
teachers  for  any  school  larger  than  the  following: 

1.  "For  inexperienst  teachers,  a  salary  not  larger  than  the  average  salary 
of  1918-19  of  the  teacTiers  in  the  county  holding  the  same  grade  certificates. 

2.  For  teachers  of  successful  experience  of  two  or  more  years  holding 
elementary  certificates,  $65  per  montli." 

South  Carolina 

Superintendent  Swearingen  reports  that  high  school  salaries  were 
raised  so  that  the  lowest  paid  high  school  assistant  received  $75  per 
month  instead  of  $55 — an  increase  of  30  per  cent.  The  $75  was 
increast  by  $5  for  each  of  the  two  succeeding  years  of  experience.  An 
Act  of  1919  provides  for  salaries  of  elementary  school  teachers  as 
follows : 

"An  assistant  teacher  holding  a  first-grade  certificate  shall  be  paid 
not  more  than  $60  per  month ;  an  assistant  teacher  holding  a  second- 


92  NATIONAL  EDVCATION   ASSOCIATION 

grade  certificate  shall  be  paid  not  more  than  $50  per  month,  and  an 
assistant  teacher  holding  a  third-grade  certificate  shall  be  paid  not 
more  than  $40  per  month." 

"In  any  district  the  board  of  trustees  may  pay  lower  salaries  in 
their  discretion ;  but  such  lower  salaries  shall  always  constitute  the 
basis  for  calculating  any  deficiency  to  be  made  up  from  the  funds 
provided  under  this  Act.  If  the  salaries  paid  teachers  in  any  district 
exceed  the  salaries  herein  authorized,  the  total  amount  of  the  excess 
must  be  applied  by  the  board  of  school  district  trustees,  either  by 
private  subscription,  or  by  a  higher  rate  of  local  taxation.  Any  dis- 
trict running  its  school  longer  than  seven  months  must  also  pay  the 
cost  of  the  eighth  month,  or  of  the  ninth  month,  by  private  subscrip- 
tion, or  by  a  higher  rate  of  local  taxation." 

Texas 

State  Superintendent  Annie  Webb  Blanton  reports  three  measures 
aflfecting  teachers'  salaries  recently  past  by  the  State  of  Texas : 

First — "For  the  purpose  of  promoting  the  public  school  interests  of  rural 
schools  and  those  of  small  towns,  and  of  aiding  the  people  in  providing  adequate 
school  facilities  for  the  education  of  their  children,  $2,000,000,  or  such  part 
thereof  as  may  be  necessary,  is  hereby  appropriated  out  of  any  money  in  the 
State  Treasury  not  otherwise  appropriated  for  the  school  year  ending  August 
31,  1920,  and  $2,000,000,  or  such  part  thereof  as  may  be  necessary,  for  the 
year  ending  August  31,  1921,  to  be  used  in  accordance  with  the  provisions  of 
this  Ac't  in  aiding  rural  schools  and  those  of  small  towns." 

Secondly — The  prompt  payment  of  teachers  without  discount,  and. 
Thirdly — Equal  pay  for  men  and  women  in  the  State  schools  of 
the  State. 

Virginia 

At  the  legislative  session  of  1918,  the  amount  appropriaied  f)y  tht- 
State  for  teachers'  salaries  was  increast  about  $800,000.  Superin- 
tendent Hart  hopes  that  the  next  session  of  the  Legislature  will  provide 
local  increases  to  teachers'  salaries  amounting  to  appro.ximately  25 
per  cent. 

GROUP  C 

Illinois 

The  State  ^f  Illinois  has  a  hill  pending  which  will  make  S700 
per  school  year  of  36  weeks  the  cf)mpensati()n  rate  at  w  liicli  all  u  acliers 
in  the  public  schools  must  be  paid.  This  Act  dues  not  api)Iy  lu  any 
school  district  levying  the  maximal  amount  of  taxes  authorized  by  law. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  93 

Indiana 

Superintendent  Hines  reports  that  the  multiples  for  determining 
the  wages  of  teachers  have  been  increast  25  to  30  per  cent.  The 
School  Board  at  Whiting,  Indiana,  has  establisht  $1,000  as  a  minimal 
salary  for  all  grade  teachers,  even  beginners. 

Michigan 

No  bills  were  past  by  the  last  Legislature  uf  this  State,  but  a  very 
active  campaign  has  been  carried  on  by  the  State  Teachers'  Association 
for  the  betterment  of  salaries  in  that  State.  A  bulletin,  "Teachers' 
.Salaries  in  Michigan,"  pviblisht  by  the  State  Teachers'  Association,  has 
been  largely  instrumental  in  improving  the  salary  situation  thruout  the 
State.  Some  of  the  larger  cities,  particularly  Detroit,  have  establisht 
salary  schedules  very  much  in  advance  of  past  years,  while  some  of 
the  smaller  places,  such  as  Monroe,  have  establisht  a  minimal  salary 
of  $1,000.  Considering  that  the  average  salary  of  Monroe  was  $735, 
this  represents  a  noteworthy  advance. 

Ohio 

Assistant  Superintendent  Riegel  states  that  "Boards  of  Education 
generally  are  increasing  salaries  of  superintendents  and  teachers.  In 
some  cases  the  salaries  are  double  what  they  were  three  or  four  years 
ago."  A  bill  was  under  considerjition  in  the  State  Legislature  which 
would  provide  a  salary  schedule  for  elementary  teachers  ranging  from 
a  minimum  of  $60  per  month  to  $75  per  month,  according  to  the 
amount  of  experience,  and  also  providing  that  all  schools  should  be  in 
session  for  eight  months. 

GROUP  D 

Iowa 

The  State  of  Iowa  recently  past  a  minimum  wage  law  which, 
according  to  Superintendent  Deyoe,  may  be  regarded  as  a  decided  step 
in  advance  for  better  teachers'  salaries  in  Iowa.  This  law- financially 
recognizes  the  differences  in  amount  of  preparation.  A  teacher  who 
has  completed  a  four-year  college  course  and  received  a  degree  from 
an  approved  college  and  who  is  the  holder  of  a  State  certificate  shall 
receive  a  minimum  v,^age  of  $100  per  month,  and  after  two  years  of 
experience,  the  minimum  wage  shall  !)e  $120  per  month.  A  teacher 
who  has  completed  a  two-year  course  in  the  State  Normal  School  shall 
receive  a  minimum  of  $80,  which  after  two  years'  successful  experience 
shall  be  $100.  A  teacher  who  has  completed  a  normal  course  in  a 
normal  training  high  school  and  has  less  than  one  year's  successful 
teaching  experience  sliall  have  a   mim'numi   wage  of  $65  per   month. 


94  NATIONAL  EDUCATION  ASSOCIATION 

which  after  additional  training  will  be  increast  to  $75  and  then  $80 
per  month.  A  teacher  who  is  the  holder  of  a  second-grade  county- 
certificate  shall  receive  a  minimal  wage  of  $60,  which  after  one  year 
of  successful  teaching  experience  becomes  $65,  while  a  teacher  holding 
a  third-grade  county  certificate  shall  receive  a  minimal  wage  of  $50. 

Minnesota 

Superintendent  McConnell  states  that  "No  laws  relating  to  teachers' 
salaries  were  enacted  by  the  last  Legislature,  but  salaries  have  advanst 
at  least  40  per  cent  over  1914,  and  at  least  10  per  cent  over  last  year. 
The  advance  has  been  general  thruout  the  State,  and  I  have  not  been 
informed  of  any  action  taken  by  any  particular  school  board." 

Missouri 

The  State  of  Missouri  past  a  bill  which  provided  a  50  per  cent 
increase  for  county  superintendents  and  gave  serious  consideration  to 
another  bill  which  provided  material  increases  for  teachers'  salaries 
ranging  from  $65  to  $100  per  month.  The  latter  bill,  however,  was 
defeated  after  much  favorable  discussion  thruout  the  State.  There  is 
a  general  tendency  to  increase  the  grade  teachers'  salaries.  St.  Louis 
and  Kansas  City  led  in  this  movement,  with  increases  of  approximately 
25  per  cent  to  their  teachers,  whereas  we  are  informed  by  Rural  School 
Inspector  Harrawood  that  Sedalia,  Joplin,  Poplar  Bluff  and  Jefferson 
City  increast  teachers'  salaries  from  10  to  20  per  cent. 

North  Dakota 

According  to  Assistant  Superintendent  George  A.  AIcFarland,  the 
salaries  paid  in  the  better  graded  schools  were  increast  to  $90  or  $110 
per  month.  The  salaries  of  county  superintendents  were  also  increast 
from  50  per  cent  to  70  per  cent,  with  an  additional  increase  in  mileage. 

Oklahoma 

Assistant  Superintendent  Collette  reports  that  no  bills  were  past  at 
the  recent  session  of  the  Legislature  affecting  the  salary  of  teachers. 
The  State  Board  of  Education,  however,  authorized  a  10  per  cent 
increase  in  the  salaries  of  those  teaching  in  the  State  normal  schools. 
"Local  Boards  of  Education  thruout  the  State  are  increasing  the  salary 
for  the  next  school  year ;  I  think  the  general  increase  would  average 
about  15  per  cent." 

South  Dakota 

Superintendent  Shaw  replies  as  follows : 

"I  regret  to  say  that  no  legislative  action  regarding  teachers'  salaries 
in  this  State  was  past  at  our  Legislature  which  adjourned  on  March 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  95 

/th  of  this  year.  Teachers'  salaries  in  South  Dakota  have  been  increast 
about  20  per  cent  over  the  salaries  paid  last  year,  but  no  legislation 
concerning  the  matter  was  past." 

GROUP  E 

Arizona 

No  legislation  affecting  teachers'  salaries  was  past  at  the  last  session 
of  the  State  Legislature.  "A  bill,  however,  was  introduced,  providing 
for  a  minimum  wage  of  $1,200,  but  failed  of  passage."  Superintendent 
Case  reports  that  some  of  the  local  school  boards  have  made  increases 
in  salaries  as  high  as  25  per  cent. 

California 

Backt  by  school  organizations  all  over  thte  State,  a  vigorous  cam- 
paign for  increast  school  taxation  and  better  salaries  for  California 
was  successfully  waged  during  1919.  It  resulted  in  the  passage  of  a 
bill  increasing  the  State  allowance  per  pupil  from  $15  to  $17.50. 
Another  bill  increast  the  State  apportionment  of  school  funds-  from  a 
basis  of  $250  to  $350  per  teacher,  while  a  third  bill  provided  that  the 
county  apportionment  should  be  increast  from  $13  to  $21  per  pupil, 
and  fixing  $550  as  the  amount  per  teacher  to  be  raised  by  local  taxation. 

Colorado 

Colorado  salaries  were  increast  by  20  per  cent  for  teachers  in  third- 
class  districts,  and  a  minimal  salary  of  $75  per  month  was  establisht 
for  teachers  in  the  first-  and  second-class  districts,  according  to  the 
report  of  Mary  C.  C.  Bradford,  Superintendent  of  that  State. 

Idaho 

No  laws  were  past  which  distinctly  establisht  standards  for  teach- 
ers' salaries.  There  is,  however,  a  general  movement  over  the  State 
to  increase  teachers'  salaries,  and  make  them  more  commensurate  with 
the  costs  of  living.  Several  of  the  smaller  places,  among  them  Black- 
foot,  Nampa,  Pocatello  and  others,  have  establisht  schedules  which 
will  provide  for  minimal  salaries  of  $1,000  with  liberal  maximal  sal- 
aries above  that.  A  campaign  for  better  salaries  is  being  conducted 
by  iMiss  Redfield,  State  Superintendent.  Many  more  cities  are  expected 
to  meet  this  standard  for  the  next  year. 

Montana 

Miss  May  Trumper,  Superintendent  of  Public  Instruction,  reports 
that  no  legislation  was  past  in  Montana  which  directly  influenst  salaries, 
with  the  exception  of  a  bill  providing  for  "equal  pay  for  equal  work 
for  men  and  women."    The  teachers  of  Butte.  ^Montana,  however,  were 


96  NATIONAL  EDUCATION  ASSOCIATION 

successful  in  securing  a  $300  increase  in  the  salaries  for  next  year,  in 
addition  to  a  $100  bonus  for  the  salaries  of  the  present  year.  This  will 
give  for  Butte  a  minimal  salary  of  $1,000  for  grade  teachers,  $1,400 
for  junior  high  school  teachers,  and  $1,600  for  senior  high  school 
teachers. 

New  Mexico 
"The  salaries  in  New  Mexico  for  the  school  year  beginning  Sep- 
tember, 1919,  will  run  from  30  to  40  per  cent  higher  than  last  year," 
is  the  opinion  of  Superintendent  Wagner.  Special  provision  was  also 
made  in  New  Mexico  for  rural  schools  and  a  law  was  past  providing 
a  salary  schedule  for  them  as  follows : 

"The  amount  which  may  be  expended  by  any  rural  school  district,  where 
no  such  graded  school  is  maintained,  for  all  purposes  except  the  construction, 
purchase.  lease,  repair  or  equipment  of  school  houses,  shall  not  during  any 
school  year  exceed  the  sum  of  seventy  dollars  ($70.00)  per  month  per  school 
room  in  which  a  teacher  holding  a  third-grade  certificate  is  employed  nor  more 
than  ninety  dollars  ($90.00)  per  month  per  school  room  in  which  a  teacher 
holding  a  second-grade  certificate  is  employed  nor  more  than  one  hundred  and 
ten  dollars  ($nO.(X))  per  month  per  school  room  in  which  a  teacher  holding  a 
first-grade  or  higher  certificate  is  employed." 

Oregon 

Superintendent  Churchill  reports  the  passage  of  a  minimal  salary 
bill  for  the  State  of  Oregon,  which  makes  $75  per  school  month  the 
legal  minimum  for  any  public  school  teacher.  He  also  reports  various 
increases  in  the  salaries  of  the  teachers  in  the  cities  within  the  State. 
Noteworthy  among  these  is  the  increase  in  the  Portland  schools,  where 
by  a  special  election  on  May  10  an  increase  of  $531,000  was  voted  by 
the  school  district  of  Portland  to  be  spent  exclusively  in  increasing 
teachers'  salaries.  This  will  give  each  teacher  in  the  service  a  flat 
increase  of  $40  per  month  or  $400  per  year  over  the  present  schedules, 
and  will  make  the  minimal  salary  for  beginning  teachers  in  Portland 
$1,200. 

Washington 

Mrs.  Preston  writes  that  Seattle  has  made  a  minimum  of  $1,200 
for  grade  teachers  and  $1,500  for  high  school  teachers,  with  maximal 
salaries  of  $1,800  and  $2,100  for  the  two  divisions.  "Tacoma  has 
increast  its  tax  levy  four  mills  in  order  to  meet  the  increast  demand 
for  salaries  for  its  teachers.  In  fact,  all  of  our  first-class  districts  are 
meeting  the  demands  and  just  as  many  of  our  second-  and  third-class 
districts  as  can  do  so." 

Wyoming 

Mrs.  Morton,  State  Superintendent,  says  that  no  bills  past  the 
recent  legislature  concerning  salaries,  but  "in  a  number  of  the  coun- 


TE.^ICHHRS'  SALARIES  AM)  SALARY  SClUiDiJLliS  97 


ties  of  our  State  there  is  a  uniform  arrangement  whereby  a  minimum 
salary  for  rural  teachers  has  been  fixt.  The  mininuini  in  tliree  counties 
is  $90  per  month,  and  in  Sheridan  county  the  minimum  is  $100.  There 
seems  to  be  a  movement  that  is  sprcadinij  over  the  State  to  make  a 
provision  such  as  this." 

CONCLUSIONS 

1.  There  is  nation-wide  realization  that  teachers'  salaries  are  too  low,  and 
that  adjustments  must  be  made  in  larger  units  than  the  single  district  or  city. 
Of  the  57  States  replying  to  President  Strayer's  letter,  20  of  them  have  past 
(within  the  last  two  years)  laws  regulating  teachers'  salaries,  and  7  of  the 
remainder  have  had  bills  on  this  subject  under  legislative   discussion. 

2.  There  is  a  distinct  awakening  to  the  fact  that  elementary  teachers,  and 
more  particularly  rural  elementary  teachers,  are  most  in  need  of  immediate 
financial  relief.  Not  until  the  rural  schools  can  compete  financially  with  the 
larger  districts  is  there  much  hope  that  they  will  ever  be  more  than  the  dumping 
ground  for  inefficient  teachers  or  the  training  schools  for  city  systems. 

3.  A  national  consciousness  of  the  part  played  by  the  schools  during  the 
war,  accentuated  by  the  appreciation  of  the  part  they  are  to  play  in  the  period 
of  reconstruction,  and  the  crowning  realization  of  their  potentiality  for  good 
or  evil  in  the  period  of  social  and  industrial  unrest,  has  made  lawmakers  al) 
over  the  country  give  school  legislation  a  first  place  on  the  calendars  of  legis- 
lative assemblies. 

4.  An  ever-growing  realization  that  the  results  of  public  education  depend 
in  a  large  measure  upon  the  efficiency  of  the  teachers,  has  provokt  much  legis- 
lation, resulting  in  increast  standards  of  preparation  for  teachers.  This  has 
inevitably  led  to  the  providing  of  better  salaries  as  the  final  means  of  "enforcing" 
the  added  requirements. 

5.  Recent  legislation  on  teachers'  salaries  in  a  great  majority  of  cases  has 
been  instigated  at  least  with  the  cooperation  of  school  men  and  teachers'  organi- 
zations, and  has  been  on  a  much  more  intelligent  and  liberal  basis.  Heretofore, 
salary  laws  were  too  frequently  prompted  by  anything  but  altruistic  motives. 

6.  Each  section  of  the  country  is  making  about  an  equal  effort  to  improve 
the  conditions  of  its  teachers,  but  they  are  far  from  securing  equal  results.  An 
examination  of  the  results  accomplisht  in  some  of  the  States  in  Group  B,  in 
comparison  with  standards  set  and  paid  for  in  States  in  the  other  sections,  is 
one  of  the  most  conclusive  arguments  for  federal  aid  to  education  in  the  United 
States. 


CHAPTER  IV 
TEACHING  AND  THE  ECONOMIC  SITUATION 

Part  I..  Economic  Aspects  of  the  Educational  Emergency 

The  present  emergency  in  education  is  a  direct  outgrowth  of  the 
financial  exploitation  of  teachers,  and  no  permanent  corrections  can  be 
made  until  teachers'  salaries  are  very  materially  increast.  Other 
causes  for  this  emergency  are  given  and,  when  analyzed,  prove  to  be 
merely  statements  of  the  salary  problem,  in  different  words,  or  from 
a  different  angle.  Other  reasons  are  given,  such  as  inadequate  sup- 
port, inequality  of  burden,  shortage  of  teachers,  and  untrained 
teachers.  Inadequate  support  is  a  question  of  salaries  since  57  per 
cent  of  the  money  expenses  for  school  purposes  in  the  United  States 
in  1915-16  was  for  salaries,  and  it  is  a  higher  percentage  now.  In- 
equality of  burden  is  almost  entirely  a  question  of  salary  since  the  big 
differences  arise  there  rather  than  in  cost  of  buildings,  school  supplies, 
and  operating  expenses.  A  serious  shortage  of  teachers  does  exist 
and  has  been  an  important  element  in  the  present  emergency,  but 
practically  all  teachers  who  have  left  teaching  for  reasons  other  than 
marriage,  ill-health,  or  old  age.  did  so  for  positions  paying  better 
salaries. 

Teachers  are  untrained,  but  the  graduates  of  all  the  public  and 
private  normal  schools  are  not  more  than  one-sixth  of  the  new  teachers 
needed  each  year,  and  yet  very  few  of  the  normal  schools  are  carrying 
their  capacity  number  of  students.  The  rewards  of  teaching  do  not 
encourage  the  expenditure  of  time  and  money  in  professional  prepara- 
tion. This  will  also  account  for  the  shortness  of  the  teacher  training 
courses,  being  in  most  cases  only  one  or  two  years. 

The  training  of  teachers  is  influenst  not  only  by  the  prospective 
lack  of  salary  for  the  students  but  also  by  inadequate  support  of  these 
normal  schools,  particularly  in  the  salaries  of  the  normal  school 
teachers.  Few  States  have  a  salary  schedule  for  their  normal  schools 
which  will  bear  comparison  with  the  salaries  in  the  better  high  schools 
of  the  State.  As  a  nation  we  spend  as  much  per  student  per  year  to 
educate  any  high  school  pupil  or  any  boy  in  a  reform  scliool  as  we  do 
for  the  training  of  a  teacher  in  a  normal  school.  We  spend  nearly 
twice  as  much  for  a  pupil  in  a  deaf  school,  more  than  twice  as  much, 
for  a  college  or  university  student,  three  times  as  much  for  a  blind 
student,  and  nearly  four  times  as  much  for  the  training  of  a  feeble- 
minded child. ^ 

Probably  the  two  reasons  why  the  question  of  teachers'  salaries  is 
educationally  paramount  at  the  present  time  are  ( i )  salaries  have  not 


'  From   Table   VIII,   Commissioner   of   Education    Report,   Vol.    II,    1917,    page  25. 

98 


TEACHERS'  SALARIES  A. YD  SALARY  SCHEDULES 


99 


kept  pace  with  the  increast  cost  of  Hving,  and  (2)  teaching  is  so  poorly 
paid  in  comparison  with  other  Hnes  of  work  that  it  has  suffered 
tremendously  by  competition.  The  opposites  of  these  two  statements 
are  frequently  claimed  to  be  true  and  used  as  arguments  against 
measures  for  the  better  support  of  schools  or  the  increase  of  teachers' 
salaries.  It  behooves  all  teachers  to  know  /jozt.'  true  they  are,  which 
the  comparisons  in  this  part  of  the  chapter  will  show. 

A.  Teachers'  Salaries  and  the  Cost  of  Living 
Have  teachers'  salaries  advanst,  and  if  so,  how  much?  Table 
LVII  will  show^  that  during  the  last  twelve  years  the  average  salary 
for  all  the  teachers  in  the  United  States  has  increast  from  $381.77  to 
$630.64,  an  increase  of  65  per  cent — "A  tremendous  increase!  What 
an  ungrateful  lot  of  money-grabbing  Croesuses  the  teachers  of  the 
United  States  must  be  to  have  such  an  increase  in  salary  and  still  be 
waging  campaigns  for  more"  exclaims  the  self -pitying  and  near- 
sighted taxpayer.  What  does  an  increase  of  65  per  cent  mean  when 
based  upon  such  a  salary  for  1906  as  $381.77  ($31.80  a  month)  ? 

TABLE    L\'II 

AVER.A.GE  ANNUAL  SALARIES  FOR  TEACHERS  (MEN  AND  WOMEN)  IN  "STATE  SCHOOL 

SYSTEMS"   FOR  THE  UNITED   STATES  AND   FOR  THE 

FIVE  GEOGRAPHICAL  DIVISIONS 

FOR  THE  YEARS   1906-07  TO  1915-16* 


United 

North 

North 

South 

South 

Western 

Year 

States 

Atlantic 

Central 

Atlantic 

Central 

1906-07 

S3S1.77 

S567.4S 

S373.86 

S    235.73 

S239.59 

S535.95 

1907-08 

414.87 

581.36 

436.56 

232.13 

260.04 

550.27 

1908-09 

442.89 

648.07 

457.07 

292.38 

293.92 

558.31 

1909-10 

488.20 

611.06 

468.08 

281.88 

320.48 

576.25 

1910-11 

466.40 

604.04 

480.29 

303.91 

332.60 

607.63 

1911-12 

491.62 

651.24 

499.18 

308.34 

345.84 

668.46 

1912.13 

511.86 

668.52 

523.22 

327.19 

354.29 

709.13 

1913-14 

524.60 

696.25 

537.45 

328.88 

360.06 

699.03 

1914-15 

543.31 

727.28 

557.78 

333.58 

366.60 

734.00 

1915-16 

563.08 

728.56 

569.65 

342.39 

413.58 

797.47 

1918** 

630.64 

♦From  Reports  of  the  Commissioner  of  Education. 

**From  Estimate  of  Commissioner  of  Education,  N.E.A.  Bulletin  for  April  1919,  pg.  14. 

Such  a  salary  is  a  relic  of  days  when  teaching  was  a  side  issue  to 
some  other  occupations,  requiring  little  or  no  preparation,  continuing 
for  intermittent  periods  of  two  or  three  months  according  to  the 
season  and  the  weather  conditions  and  not  expected,  in  any  case,  to 
be  a  total  means  of  support.  It  was  rather  a  means  for  the  stay-at- 
home  girl  to  make  a  little  "ready  money"  and  have  in  addition  the 
"peace  of  mind"  which  is  the  reward  of  the  missionary  and  the  social 
worker.  xA.nother  side  of  this  story  is  that  while  the  teacher's  salary 
has  increast  65  per  cent  in  twelve  years,  it  is  not  the  only  thing  which 
has  increast.     The  cost  of  her  schooling,  the  cost  of  her  clothes,  her 


100  NATIONAL  EDUCATION  ASSOCIATION 

room  and  board,  in  other  words,  her  entire  expenses  have  by  no  means 
been  left  behind  in  the  race  toward  higher  prices  and  increast  costs. 
Not  only  have  they  not  been  left  behind,  but  they  have  been  able  to 
so  skillfully  maneuver  for  positions  that  the  teacher's  salary  has  been 
hopelessly  defeated  by  the  other  competitors  in  this  race. 

How  much  additional  preparation  can  a  teacher  afford,  how  much 
better  can  she  live,  how  much  more  optimistic  can  she  be  in  her  teach- 
ing even  if  her  salary  has  increast  65  per  cent  within  the  last  ten  years. 
when  she  realizes  that  within  the  same  period  the  cost  of  living  has 
more  than  doubled  so  that  her  65  per  cent  increase  is  in  reality  almost 
a  20  per  cent  decrease. 

In  this  age  of  economic  enlightenment  almost  every  occupation 
except  teaching  has  learned  that  there  is  such  a  thing  as  a  "standard 
of  living,"  that  this  standard  of  living  has  a  direct  effect  upon  the 
health,  happiness,  and  efficiency  of  the  worker  and  his  family,  that 
this  standard  varies  by  occupations  and  by  localities,  that  there  is  a 
minima]  level  below  which  it  is  socially  unsafe  to  force  people  to  live 
and  lastly,  that  wages  must  be  considered  not  from  the  point  of  view  of 
actual  amounts  but  in  regard  to  what  can  be  obtained  for  them. 

The  keeper  of  a  boarding  house  in  a  \^'estern  normal  school  town 
was  heard  to  remonstrate  upon  the  State's  extravagance  in  the  pay- 
ment of  its  normal  school  teachers.  vShe  complained  that  they  were 
paying  some  of  them  almost  twice  as  much  as  they  did  ten  years  before 
that.  In  that  same  ten  years  the  price  of  board  in  her  home  had  in- 
creast from  $2  per  week  to  $5.  This  tendency  of  juggling  school  ex- 
penditures by  comparisons  with  the  past,  rather  than  the  scientific 
forward  look  which  is  the  basis  of  all  modern  budget  making,  has  too 
long  prevailed.  School  men  are,  themselves,  largely  responsible  for 
this  attitude.  They  have  practist  it  and  allowed  its  use  on  them  and 
their  problems  until  now  it  has  become  a  habit  of  the  i)ublic  mind  in 
all  school  measures.  Any  means  would  be  justifiable  which  would 
break  up  this  habit,  and  the  campaign  of  education  cannot  start  too 
soon. 

Teachers  should  realize  and  they  inusf  see  to  it  that  the  people 
realize  that  salaries  ought  to  provide  for  the  coming  year,  not  the  one 
just  past.  They  must  provide  also  for  additional  preparation  at 
future  intervals,  for  a  standard  of  living  necessary  for  teachers  and 
for  a  small  margin  of  saving.  The  only  use  of  past  conditions  should 
be  to  guide  in  making  this  estimate  of  future  needs. 

Of  v\"hai  value  is  an  increase  in  a  teaxrher's  annual  salary  of  $20, 
$22.50,  $45,  or  even  $75  or  $100  (which  range  will  include  95  per  cent 
of  the  increases  given)  when  all  of  this  increase,  and  often  more,  will 
be  needed  for  the  additional  cost  of  room  and  board  alone? 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  101 

"Durinj^  the  five-year  period  between  October  1913.  and  October 
1918,  food  as  a  whole  was  75  per  cent  higher  in  1918  than  in  1913."' 
The  wholesale  price  of  every  article  increast  54  per  cent  or  more,  while 
five  articles  increast  over  100  per  cent  (corn  meal  119  per  cent,  lard 
115  per  cent,  bacon  108  per  cent,  flour  103  per  cent,  and  pork  chops 
102  per  cent).  The  close  of  1918  found  the  index  numbers  for  all 
wholesale  prices  over  200.  an  increase  of  over  100  per  cent  since  1913, 
with  an  average  for  the  year  of  i96-|-- 

What  percentage,  or  even  fraction  of  a  per  cent,  of  the  teachers 
of  the  United  States  were  receiving  in  November,  1918,  more  than 
twice  as  much  as  they  were  in  October,  191 3?  Or  we  might  be  still 
more  modest  and  ask  what  fraction  of  a  per  cent  of  the  teachers  of  the 
country  had  had  increases  of  salary  in  that  time  which  had  kept  pace 
with  the  loii'cst  percentage  of  increase  for  any  article  of  food,  namely 
54  per  cent. 

Chart  III  gives  a  graphic  representation  of  the  mal-adjustment  be- 
tween teachers'  salaries  and  the  wholesale  prices  of  "All  Commodities" 
from  the  years  1906  to  191 8.  It  shows  how  conservatively  teachers' 
salaries  have  kept  the  even  tenor  of  their  way,  with  no  regard  for  the 
tremendous  increase  in  the  cost  of  living. 

Some  near-sighted  penurious  "watchdogs  of  the  public  funds"  are 
saying:  "Prices  are  abnormal  now  and  will  drop  at  once.  Let  the 
teachers  bear  their  part  of  the  increast  cost  as  a  patriotic  duty,  until 
things  readjust  themselves."  \Miy  didn't  these  same  people  object  on 
the  same  grounds  to  the  increases  given  to  railroad  employes,  to  the 
workers  in  their  factories,  to  the  farmers  for  their  wheat?  If  patriot- 
ism consists  in  being  economically  exploited,  how  could  these  same 
objectors  bring  themselves  to  accepting  higher  prices  for  their  goods 
or  services?  Are  we  making  a  wise  investment  when  the  teachers  of 
the  coimtry  are  living  on  such  a  close  margin  that  statements  like  the 
following  are  common :  "I  am  buying  a  $50  Liberty  Bond  each  year,  so 
shall  not  be  able  to  attend  summer  school  until  they  are  paid  for." 
"I  put  the  money  for  my  magazines  into  War  Savings  Stamps?" 

Martha  and  Robert  Bruere,-  writing  in  1913.  say:  "We  are  there- 
fore eliminating  from  consideration  in  this  book  all  families  whose 
incomes,  either  in  money  or  its  equivalent,  are  less  than  $1,000,  because 
we  are  convinst  that  no  supplemental  expenditure  of  brain  and  muscle 
can  enable  them  to  rise  to  the  level  of  social  efficiency."  And  again: 
"$1,200  is  more  nearly  correct  than  $1,000  as  the  financial  minimum 
for  social  efficiency."  This  standard  set  for  191 3  would  have  to  be 
nearly  doubled  to  meet  the  need  of  1919.     Assuming  that  not  all  the 


'  Bureau  of   Labor   Statistics,   Monthly    Review.  J.anuary,    1919. 
-  Bruere  Increasing  Home  Efficiency,  page  27.     Macmillan. 


102 


NATIONAL  EDUCATION  ASSOCIATION 


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CHART    III 

CHART     SHOWING     THE      RELATIVE     INCREASE     IN 

TEACHER'S    SALARIES    AND    THE    COST    OF     LIVING 

AS      SHOWN      BY      WHOLESALE      PRICES      FOR      THE 

PERIOD    BETWEEN    1906-1918. 

Solid  line  represents  the  increase  over  the  preceding  year  in 
average  annual  salary  for  all  teachers  in  the  United  States. 
Data  taken  from  Table  LVII.  Dotted  line  at  end  covers 
period  between   1905-16  and  the  figure  for   1918. 

Broken  line  represents  the  increase  over  the  preceding  year 
of  the  index  numbers  for  the  wholesale  price  on  all  com- 
modities. Data  taken  from  the  monthly  Reviews  of  the 
Bureau    of    Labor    Statistics. 


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TEACHERS'  SALARIES  AXD  SALARY  SCHEDULES  103 

budget  items  need  to  be  increast  at  the  same  rate  as  food,  rent,  etc., 
it  would  be  a  safe  approximation  to  say  that  these  figures,  instead  of 
being  $i,ooo  and  $1,200  in  1918-19.  would  be  at  least  $1,800  and  $2,000. 

This  is  setting  a  standard  which  many  will  call  too  high,  but  it 
involves  the  social  efiiciency  of  a  family  and  not  of  a  single  teacher. 
For  several  reasons  we  must  begin  to  think  more  in  terms  of  a  com- 
pensation for  teachers  which  will  permit  the  support  of  a  family.  The 
holding  of  any  other  position  in  the  face  of  the  growing  tendency  for 
"equal  pay  for  equal  work,"  much  strengthened  by  the  war,  would 
mean  the  automatic  elimination  from  the  work  of  teaching  of  men, 
particularly  men  desirous  of  family  responsibilities. 

Omitting  the  question  of  social  efficiency — a  term  as  yet  indefinite 
and  much  debated  as  an  aim  of  education  and  as  a  standard  of  living — 
a  teacher  can  live,  i.  e.,  remain  physically  alive,  on  much  less  than 
$1,800,  or  even  $1,000 — the  tentative  standard  set  bv  the  N.  E.  .\. 
In  fact,  this  feat  is  being  yearly  done  by  approximately  20,000  teachers 
on  less  than  $500  a  year,  while  several  thousand  of  these  jugglers  of 
human  destiny  do  it  on  less  than  $300.  Unless  this  last  figure  is  supple- 
mented by  some  other  form  of  work,  these  teachers  live  on  $5.75  a 
week.  Imagine  the  budget  of  such  a  teacher.  Start  with  $5.75  for 
the  week,  provide  for  board,  room  rent,  laundry— the  items  which  must 
be  met  every  w^eek — and  plan  to  save  enough  for  clothes,  shoes,  the 
trip  or  trips  to  the  county  institute,  a  newspaper,  magazines,  dentist 
and  doctor  bills,  and  set  aside  the  remainder  for  a  quiet  rest  during 
part  of  the  summer,  or  a  summer  course  at  the  State  normal  school, 
an  occasional  trip  to  some  nearby  spot  of  historic,  scenic,  or  civic 
interest,  a  few  small  donations  to  friends,  church,  or  charity,  and  some 
margin  of  savings  to  be  invested  in  a  Liberty  Bond  or  deposited  in  a 
savings  bank. 

Long  before  the  above,  none  too  adequate,  list  of  expenses  are  met 
in  this  imaginative  budget  we  are  made  to  realize  that  these  thousands 
of  teachers  in  all  probability  are  compelled  to  prepare  their  own  meagre 
and  monotonous  meals,  they  do  all  their  own  laundry,  make  many  of 
their  clothes,  and  wear  what  they  do  have  until  they  are  noticeably 
behind  the  mode  and  worn  to  shabbiness.  They  will  have  to  have 
sound  teeth  and  good  health  and  forego  all  sources  of  professional 
advancement  or  recreation.  They  must  sufifer  the  constant  mortifica- 
tion which  comes  from  inability  to  assist  with  the  support  of  religious 
and  social  activities  in  the  community  and  deny  themselves  the  privilege 
of  forming  the  "thrift  habit  of  saving"  which  they  are  expected  to 
teach. 

The  National  War  Labor  Board,  in  an  exhaustive  inquiry  into  the 
cost  of  living  in   Schenectady,  set  $15   as  a   minimal   weekly  amount 


104  NATIONAL  EDUCATION  ASSOCIATION 

upon  which  a  girl  can  Hve.  About  60  per  cent^  of  the  teachers  of  the 
country  are  teaching  this  year  for  less  than  the  ^780  which  this 
minimum  calls  for,  to  say  nothing  of  the  expenses  which  a  teacher 
must  meet  which  are  not  necessary  for  the  worker  in  a  factory. 

Only  about  20  per  cent  of  the  teachers  of  the  United  States  receive 
a  salary  of  over  $1,200,  the  minimum  for  social  efficiency  set  in  1913, 
and  if  this  were  raised  to  $1,500  for  1918-19,  there  would  be  but  about 
6  per  cent  able  to  reach  it,  while  if  it  were  raised  to  Si, 800  it  would 
reduce  this  percentage  to  but  25^  per  cent. 

In  no  other  work  is  the  7imximal  efficiency  of  the  workers  more 
necessary  than  in  teaching,  and  yet  by  national  niggardliness  we  make 
it  impossible  for  about  four  out  of  every  five  of  our  teachers  to  reach 
even  the  minimum  of  efficiency,  with  the  maximum  far  out  of  reach 
even  for  most  of  these  more  fortunate  few.  The  American  people 
are  expecting  more  of  teachers  now  than  ever  before  and  many  of 
these  expectations  are  along  lines  which  cost  teachers  more  to  meet 
than  at  any  previous  time,  and  yet  teachers'  salaries  are  lower  in 
purchasing  power  than  they  were  12  years  ago.  The  answers  received 
from  teachers  at  work  under  present  conditions^  indicate  that  the 
median  percentage  of  salary  used  for  necessary  expenses  is  very  nearly 
100  per  cent,  of  which  only  about  15  per  cent  was  spent  on  expenses 
other  than  "personal  living  expenses."  The  condition  Js  shown  in 
another  light  when  total  expenses  are  computed  from  the  cost  of  "room 
and  board"  as  given  by  the  superintendents  in  310  cities,  and  compared 
with  the  maximal  salaries  offered  in  the  same  cities  (Table  XLIII). 
In  48  per  cent  (practically  one-half)  of  the  cities  reporting,  the  teachers 
would  be  compelled  to  spend  100  per  cent  or  more  of  their  salaries  in 
order  to  live.  This  means  that  no  matter  how  long  the  teachers  in 
such  cities  continue  in  the  work,  no  matter  how  much  extra  training 
they  take,  they  cannot  hope  for  a  maximal  salary  which  will  defray 
expenses  without  cutting  down  the  standard  of  living.  The  condition 
would  be  infinitely  worse  if  we  assumed  that  teachers  should  have  the 
same  margin  for  savings  on  their  investments  which  we  take  for 
granted  in  all  other  investments. 

Salary  schedules  for  teachers  must  be  revised  and  in  the  light  of 
present  demands  upon  teachers  and  the  present  cost  of  living. 

B.    Are  Teachers  Better  Paid  than  Other  Workers? 

There  are  several  reasons  for  the  popular  idea  that  teachers  are 

"well-paid  holders  of  easy  jobs,  with  easy  hours,  and  long  vacations." 

a.     Teachers'  salaries  are  usually  divided  into  eight  or  nine  install- 


^  An   estimate  based   on    the   Distribution   of   salaries    for   1918-19,   as   given    in   Table    IV, 
pagc-^iS. 

-  "Studies  -a  and  7b"  in  Chapter  II,  page  73. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  105 

inents  and  consequently  seem  from  25  to  33  1/3  per  cent  higher  than 
they  really  are. 

b.  Salaried  people  are  always  adjudged  better  off  by  wage  earners, 
because  $75  a  month  sounds  better  than  $18.75  ^  weel:  or  than  $3.12 
a  day. 

c.  Six  hours  a  day  seems  to  many  people  to  be  a  small  number 
of  working  hours.  This  compares  very  favorably  with  the  hours  kept 
by  business  men,  lawyers,  bankers  and  others,  and  Vk'ith  the  growing 
tendency  of  several  of  the  labor  unions  to  advocate  six-  and  even  five- 
hour  days.  But  when  from  two  to  four  hours  is  added  for  "home 
work"  in  preparation  for  the  work  of  the  next  day  (ever  a  new  situa- 
tion to  the  progressive  teacher),  the  teacher's  day  becomes  longer  than 
that  of  most  workers. 

d.  Teachers  have  long  vacations,  but  living  expenses  go  on  during 
those  vacations  just  the  same  and  often  increase  if  the  teacher  spends 
part  of  the  time  in  self-improvement.  If  she  has  to  turn  to  some  other 
form  of  work  it  isn't  a  vacation,  and  if  she  doesn't  she  usually  begins 
the  school  year  in  debt,  and  so  reduces  her  income  for  the  next  year. 

c.  Teaching  has  never  entirely  recovered  from  the  idea  that  it  is 
a  good  occupation  for  the  local  boys  and  girls  to  follow  who  can  board 
at  home  and  consequently  work  for'  less  salary. 

These  and  other  points  of  view  give  an  erroneous  idea  of  the 
adequacy  of  teachers'  pay.  Assuming  that  teaching  is  a  profession 
(the  amount  of  training  required  does  not  as  yet  justify  this  assump- 
tion, but  the  tendency  is  decidedly  in  that  direction),  it  is  interesting 
10  compare  the  salaries  of  teachers  with  other  professions.  The  aver- 
age salary  for  all  teachers  in  the  United  States  in  1918,  according  to 
the  Commissioner  of  Education's  report,  was  $630.64.  The  median 
salary  of  76,775  teachers  in  elementary,  intermediate,  and  high  schools 
in  320  cities  over  10,000  population  in  1918  was  only  $869.34.' 

The  ministry  is  seldom,  if  ever,  cited  as  a  highly  paid  profession, 
and  yet  the  median  salary  for  Episcopal  clergymen  in  this  country  in 
1918  was  $1,218.50,^  between  $400  and  $500  more  than  the  median 
salary  for  teachers,  without  considering  the  additional  value  of  a  free 
parsonage. 

'ilie  Massachusetts  Institute  of  Technology  took  a  census  of  the 
three  classes  of  1893,  1894,  and  1896  ten  years  after  graduation  and 
found  the  median  salaries  to  be  $3,410,  $2,430,  and  $2,540.^  Almost 
no  salary  schedules,  even  for  high-school  teachers  who  have  as  much 
or  more  training,  provide  for  a  maximum  salary  at  the  end  of  ten 
vears  equal  to  the  lowest  of  these  median  salaries. 


1  N.  E.  A.    Bulletin  on  Teachers*  Sahiries   in   1918,  page   58. 

-  Preliminary  Report  of  the  Joint  Commission  on  the  Support  of  the  Episcopal  Clertfj 

••Technology    Review    for    1915. 


106 


NATIONAL  EDUCATION  ASSOCIATION 


TABLE  LVIII 

INCOME  STATISTICS  OF  GRADUATES  IN  ENGINEERING  FROM  A  WESTERN  STATE 

UNIVERSITY* 


Year- 
Out  of 

Number 

Highest 
Income 

Lowest 

Average 
Income 

Per  Cent 
Above 

Per  Cent 
Below 

College 

Reporting 

Income 

Average 

Average 

1 

166 

$    4,000 

$      150 

$       884 

40 

60 

2 

152 

7000 

400 

1,115 

28 

72 

3 

136 

4,000 

300 

1,225 

34 

66 

4 

119 

4,500 

600 

1,379 

31 

69 

5 

94 

5,000 

420 

1,498 

32 

68 

6 

80 

4,000 

600 

1,596 

48 

52 

7 

73 

3,400 

720 

1,697 

48 

52 

8 

63 

5,000 

650 

1,786 

47 

53 

9 

53 

7,000 

840 

1,996 

38 

62 

10 

50 

8,300 

1020 

2,296 

30 

70 

11 

43 

10,300 

800 

2,530 

28 

72 

12 

34 

13,200 

800 

2,819 

26 

74 

13 

35 

20,000 

900 

3,127 

21 

79 

14 

30 

40,000 

900 

3,927 

13 

87 

IS 

31 

33,000 

1,000 

3,884 

13 

87 

16 

28 

21,800 

800 

4,252 

11 

89 

17 

25 

27,500 

** 

3,440 

16 

84 

18 

23 

37,000 

1.000 

4,671 

13 

87 

19 

21 

27,000 

1,500 

4,663 

19 

81 

20 

17 

23,000 

2,000 

5,946 

24 

76 

21 

17 

33,000 

2,100 

7,734 

29 

71 

22 

16 

42,500 

2,100 

8,006 

19 

81 

23 

16 

46,000 

2,000 

7,687 

25 

75 

24 

13 

33,500 

2,100 

8,172 

23 

77 

25 

10 

14,800 

2,100 

4,630 

30 

70 

26 

7 

13,500 

2,100 

4,671 

14 

86 

27 

5 

19,700 

1,500 

6,340 

20 

80 

28 

5 

22,500 

1,500 

6,980 

20 

80 

29 

3 

4,200 

3,000 

3,567 

33 

67 

30 

3 

4,500 

3,000 

3,833 

67 

33 

31 

3 

4,500 

3,000 

4,075 

75 

25 

32 

3 

4,500 

3,700 

3,983 

33 

67 

33 

2 

5,000 

3,700 

4,350 

50 

50 

34 

1 

5,000 

5,000 

5,000 

0 

0 

35 

1 

5,000 

5.000 

5,000 

0 

0 

*From  Engineering  News,  Sept.  9,  1915,  p.  505. 
♦♦Indefinite  loss  reported  for  this  year. 


The  class  of  1908  of  the  same  school  took  a  canvass  of  its  members 
in  June,  1910 — two  years  after  graduation — and  from  126  replies 
found  that  the  median  salary  was  $1,206.  A  year  later,  from  141 
replies  the  same  class  had  a  median  salary  of  $1,409. 

Table  LVIII,  showing  the  income  statistics  of  graduates  in  engi- 
neering from  a  Western  State  university,  tells  a  story  very  unlike  the 
one  which  a  similar  table  for  teachers  would  tell.  In  this  table  it  is 
easy  to  see  a  high  positive  correlation  between  salary  and  experience, 
with  an  average  annual  increment  of  $200  for  each  of  the  first  fifteen 
years. 

Table  LIX  gives  the  average  annual  earnings  of  medical  graduates 
of  Harvard  University  since  1901  by  years  after  graduation,  as  well 
as  the  earnings  of  the  graduates  of  its  law  courses  according  to  the 
number  of  years  out  of  college.  The  median  salaries  for  teachers  in 
Section  A,  which  would  correspond  most  nearly  v/ith  the  salaries  of 
Harvard  graduates,  is  $823  for  elementary,  $999  intermediate,  and 
$1,139  high  school. 


TEACHERS-  SALARIES  AND  SALARY  SCHEDULES 


107 


TABLE  LIX 
AVERAGE  ANNUAL  EARNLNGS  OK  MEDICAL  GRADUATES  OF  HARVARD  UNIVERSITY.* 


Years  of 
Practice 

1901 

1902 

1903 

1904 

1905 

1906 

1907 

1908 

1909 

1910 

1 

$866 

S  7x7 

$  541 

$  362 

$  625 

$  502 

S  355 

$  533 

$  425 

1237 

■ 

827 

1089 

790 

995 

773 

826 

588 

1250 

874 

1083 

w     ^ 

1181 

1539 

1412 

1295 

995 

1262 

1353 

1025 

1370 

1578 

*     4   . 

1505 

1694 

1720 

1566 

1559 

1765 

1963 

15  S 

1632 

1835 

5 

2027 

1556 

1966 

1981 

181X 

2359 

234  7 

1847 

2150 

6 

2.341 

1837 

2333 

2277 

2.<47 

2997 

3202 

2360 

7 

2527 

2161 

2654 

2967 

3043 

3650 

3545 

8 

3003 

2491 

3155 

3042 

3337 

4332 

9 

3560 

2900 

3616 

3604 

4500 

10 

3524 

2963 

4135 

4535 

11 

3885 

3691 

4604 

12 

4422 

4130 

13 

4680 

Max.  No.  of 

Men 

38 

39 

29 

39 

33 

26 

29 

29 

25 

26 

♦From  Training  Rewards  of  the  Physician  "Cabot." 

Figures  compiled  from  Harvard  Lfniversity  in  1914  on  the  average  annual  earnings  of  Lawyers  and 
Doctors. 


Years  out  of 
College 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

No.  of  Replies 

(1) 

694 
664 
623 

609 
1110 
909 

497 
1645 
1301 

411 
2150 
1681 

317 
2668 
2005 

249 
3118 
2410 

162 
3909 
2935 

112 
4426 
3227 

62 
5321 
3636 

40 

Law-ive  earn- 
ing  

Med.-ave.  earn- 
ing  

5325 
3789 

(1)  No.  of  replies  only  for  Iaw>'ers. 

Chart  IV  gives  the  average  yearly  compensation  of  4,650  members 
of  the  American  Society  of  Civil  Engineers  by  geographical  location 
and  in  five-year  periods  of  experience.  It  makes  an  interesting  but 
not  very  cheerful  comparison  with  the  situation  shown  in  Table 
\TII,  showing  the  median  salaries  of  different  sections  of  the  United 
States. 

The  discouraging  contrast  presented  by  these  figures  from  other 
professions  would  be  softened,  we  are  told,  when  we  compare  teachers 
with  the  workers  outside  of  the  professions.  This  is  in  a  way  as  unfair 
to  teachers  as  the  other  comparison,  since  in  this  comparison  we  shall 
have  to  disregard  the  thousands  of  teachers  who  are  sufficiently  trained 
to  be  called  professional. 

Table  LX  shows  the  union  scale  of  wages  in  a  number  of  occupa- 
tions in  the  larger  industrial  cities  in  each  of  the  geographical  regions. 
The  cities  were  selected  by  taking  the  data  for  the  first  two  cities 
reported  in  each  section  and  may  be  considered  typical,  since  the  unions 
tend  to  standardize  the  wage  and  so  offset  industrial  differences  or 
differences  in  location. 

Comparing  the  average^  wages  from  Group  C,  since  they  are  be- 
low the  median  and  consequently  conservatively  safe,  with  the  salary 

'  Average  found  for  each  item   for  the  two  cities  representing  the  group. 


108 


NATIONAL  EDUCATION  ASSOCIATION 


CHART  IV 


$11000 


flOOOO 


S9000 


S8000 


$7000 


$6000 


SoOOO 


$4000 


$1000 


AMERICAN  SOCIETY  Of  CIVH  ENGINEERS 

DIAGRAM 

SHOWING  AVERAGE   YEARLY  COMPENSATION  Of 

<650  OF  ITS  MEMBERSHIP 

GROUPED  GEOGRAPHiCALLY 

IN  FIVE-YEAR  PERIODS 
ACCOMPANYING  THE   PROGRESS  REPORT  Of   THE 

SPECIAL  COMMITTEE 

to  INVESTIGATE  CONDITIONS  OF  EMPLOYMENT  Qf 

AND  COMPENSATION   OF   CIVIL  ENGINEERS 

DECEMBER.  1914 


No.  Of 
Replies 
647 
839 
354 
810 
1608 
456 
4000 


GENERAL  AVERAGES 

Goographical  Distribution 

SoutlTern  States 
Western  States 
New  England  States 
Central  States 
Middle  Atlantic  States 

Foreign  Countries 

Total  General  Average 


Average  Yearly 
Compensation 


3717 
4028 
4200 
4333 
5300 


$4100 


SllOOO 


$10  000 


5900*3 


S8000 


$7000 


$0000 


S5000 


S4000 


S3000 


S2000 


$1000 


0  1-5  6-10 

Years  of  Experience 


11-15 


16-20 


21-25 


26-30 


31-35         38-40 


o£  elementary  teachers,  it  is  seen  that  it  is  worth,  per  year,  $394  more 
to  carry  bricks  than  to  train  children,  $363  more  to  mould  dough  for 
bread  than  to  mould  boys  and  girls  into  citizens,  $890  more  to  ham- 
mer hot  iron  than  to  hammer  ideals,  and  $1,024  more  to  build  frame- 
works for  buildings  than  frameworks  for  characters.  These  are  all 
occupations  requiring  relatively  little  training.  Most  of  them  are 
learned  by  a  pay-producing  apprentice  system,  which  is  much  shorter 
in  duration  than  the  6  to  8  years  above  the  elementary  school  which 


TEACHEKS'  SALARIES  AXD  SALARY  SCHEDULES 


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no 


NATIONAL  EDUCATION  ASSOCIATION 


CHART    V 

CHART   SHOWING   COMPARISON    OF   TEACHERS'    SALARIES   IN    SECTION    "C" 

WITH  THE  UNION   SCALE  OF  WAGES  FOR   CERTAIN   OCCUPATIONS  IN 

THE  SAME  SECTION.  AS  INDICATED  BY  THE  AVERAGE  OF  THE 

WAGES    PAID    IN    CHICAGO    AND    CLEVELAND. 


SALARY  IN  HUNDREDS  OF  DOLLARS 


Machinists 


Elementary  Teachers 


1.  Section    C    includes    Ohio,    111.,    Ind.,    Mich.,    and    Wis. 

2.  Taken   from   Table    LX. 


are  demanded  of  teachers  in  most  of  our  cities  and  many  of  our  States. 
The  longer  preparation  demanded  of  teachers  is  also  wholly  a  period    ■ 
of  expense,  since  it  is  becoming  so  exacting  of  time  that  it  is  relatively 
impossible   to    follow   any   gainful    occupation   during   the   period   of 
preparation. 

The  Department  of  Labor  made,  during  1918  and   1919,  a  very 
thoro  investigation  of  the  living  conditions  of  the  workers  in  ship-  j 


TEACHERS'  SALARIES  AXD  SALARy  SCHEDULES  111 

building  cities  over  the  United  States/  These  cities  included  four  of 
the  five  geographical  districts  used  in  this  salary  study  and  so  furnish 
an  accurate  basis  for  comparison.  Except  in  the  Southern  section, 
the  average  salaries  do  not  show  much  variation,  due,  undoubtedly,  to 
the  effect  of  government  regulation.  These  salaries,  while  they  cover 
the  expenses  of  families,  represent  the  earnings  of  individuals  and  are 
higher  in  all  cases  by  from  $300  to  $650  than  the  median  salaries  for 
elementary  teachers,  and  higher  by  $250  to  $350  than  the  median  sal- 
aries of  high-school  teachers  in  all  sections  except  the  far  western.  The 
average  for  all  these  workers  is  $1,411,  more  than  double  the  average 
salary  for  teachers  of  the  United  States. 

Comparing  this  average  with  the  average  salary  for  teachers  in 
cities  of  over  100,000  and  between  50,000  and  100,000  population,  since 
a  majority  of  the  cities  used  in  the  shipbuilding  study  fall  in  these 
classes,  we  find  that  the  ship-yard  worker  received  $475  (51  per  cent) 
more  per  year  than  the  elementary  school  teacher.  The  $1,411 
average  salary  for  ship-yard  workers  is  only  $104  less  than  the  median 
salary  for  high-school  teachers  in  cities  of  over  100,000  and  $129 
more  than  the  median  salary  for  high-school  teachers  in  cities  between 
50,000  and  100,000.  The  teachers  in  these  high  schools  have  spent  a 
minimum  of  eight  years  above  the  elementary  grades,  representing  an 
investment  in  time  and  money  of  $10,000  or  $15,000,  while  many  of 
the  ship-yard  workers  did  not  finish  the  elementary  school,  with  a 
vocational  training  period  less,  on  an  average,  than  one  quarter  as 
long  as  that  of  the  high-school  teacher. 

The  investigations  of  the  Railroad  Wage  Commission  are  par- 
ticularly significant  for  comparison  with  the  economic  situation  of 
teachers.  There  were  over  two  million  workers  included  in  the  dif- 
ferent branches  of  railroad  service  and  their  work  was  very  essential 
to  the  successful  carrying  on  of  the  war.  Consequently  when  the 
problem  of  adequate  pay  for  the  railroad  workers  was  presented  for 
settlement  it  was  necessary  that  the  matter  be  thoroly  investigated  and 
a  settlement  based  on  justice  and  sound  economics  be  made.  The 
report  of  the  Railroad  Wage  Commission  gives  the  results  of  a  care- 
ful study  of  wages  and  the  cost  of  living,  and  contains  much  which  is 
of  interest  to  teachers.  The  average  annual  salary  for  teachers  in  the 
United  States  in  1918-19  is  $630.64.^  The  average  annual  salary 
actually  earned  by  all  employees  of  all  Class  I  railroads  in  the  United 
States  during  1917  was  $i.oo6.-$375,  or  60  per  cent  more  than  teachers 
received  a  year  later. ^  In  order  to  make  them  more  comparable  in 
point  of  time,  the  average  annual  salary  of  these  railroad  employees 


1  Table  XLI.  pasre   112. 

-Report  of  the  Bureau  of  Education.  N.  E.  A.  Bulletin,  April,  1919,  page  14. 

3  Report  of  the  Railroad   Wage  Commission,   page   100,   April   30,   1918. 


112 


A'^  TIONAL  ED UCA  TIOK  A SSOCIA  TION 


was  calculated  to  be  $1,137  for  1918/  provided  the  same  number  of 
men  were  employed  for  the  year  and  at  the  rate  they  were  receiving 
December,  19 17.  This  is  $500,  or  79  per  cent  more  than  the  average 
for  teachers.  The  true  comparison  has  not  yet  been  given,  for  there 
is  the  further  consideration  that  the  last  figure  does  not  include  the 
increase  in  wages  given  during  191 8,  which  in  many  cases  would  cause 
the  79  per  cent  to  become  more  than  100  per  cent  in  excess  of  the 
average  salary  of  teachers  for  the  country. 

If  the  workers  in  the  16  lowest  paid  branches  of  the  railroad 
service  in  1918,^  shown  in  Table  LXI,  are  compared  with  teachers  in 
1918,  we  find,  when  their  191 5  wages  are  increast  according  to  the 
scale  of  increase^  adopted  by  the  Railroad  Wage  Commission,  only 
two  groups  receiving  less  than  $700  a  year,  viz.,  "messengers  and 
attendants"  and  "section  men."  These  groups  are  $43.40  and  $61.52 
higher  than  the  average  salary  for  all  teachers.  Where  will  you  find 
people  who  believe  that  teachers,  who  should  represent  a  maximum 
of  professional  training  in  order  to  do  their  work  well,  should  be 
compared  with  these  two  groups  which  represent,  work  calling  for 
about  the  minimum  of  necessary  preparation,  or  even  intelligence  to 
any  great  degree?  Moreover,  they  have  a  membership  recruited 
largely  from  boys,  cripples,  and  old  men  for  the  one,  and  from 
illiterates  and  immigrant  or  cheap  imported  labor  in  the  other.  Thou- 
sands of  these   workers   have   not  completed   the   elementary   school. 

T.A.BLE   LXI 

TABLE.SHOWIXG  .'\DV.'\NCE  IK  SALARY  FROM  1915  TO  1919  IN  THE  SIXTEEN  LOWEST 
P.^ID  BRANCHES  OF  THE  RAILROAD  SERVICE.* 


Occupation 

Salary  Dec.  1915 

Salary  Dec.  1918. 

per  month 

per  year 

per  m.onth 

per  year 

1.     Clerks   below  $900   p.   a.    (except    tele- 
grapher clerks 

S54.17 
36.17 
50.39 
37.68 
46.44 

42.88 

50.22 

59.99 

51.45 

56.58 

39.59 

55.33 

54.61  ■• 

59.15 

52.00^ 

50.53 

S650.04 
434.04 
604.68 
452.16 

557.28 

514.56 

602.64 

719.88 

617.40 

678.96 

475.08 

[  663.96 

[655.32 

709.80 

'  624.00 

606.36 

S77.55 
56.17 
72.60 
57.68 
67.21 

62.88 

72.60 

84.60 

73.70 

80.377 

,S9.59 

78.96 

77.55 

84.60 

73.70 

72.60 

$9^0.60 

2.     Messengers  and  attendants 

674.04 

3.  Mechanics'  helpers  and  apprentices 

4.  Section  men 

871.20 
692.16 

5.     Other  unskilled  laborers 

806.52 

6.     Other   men    in   const,    gangs   and    work 
trains 

754.56 

7.     Station  service  employees** 

871.20 

8.     Yard  switch  tenders 

1015.20 

9.     Other  yard  employees 

884.40 

10.  Enginehouse  men 

964.44 

11.  Crossing  flagmen  and  gatemen 

715.08 

12.  Drav/'^ridge  ooerators 

947.52 

13.  Flo;  ti  ig  equipment  employees 

930.60 

14.  Policemen  and  watchmen 

1015.20 

Is.  Other  transportation  employees 

884.40 

16.  All  other  employees 

871.20 

*  From  Report  of  the  Railroad  Wage  Commission,  April  30,  1918.  Data  for  1915  pg.  98;  for  1918 
pg.  20. 

**The  following  are  excluded  from  this  classification:  Clerks,  $900  p.  a.  and  upwards:  Clerks  below 
$900  p.  a.;  Telegrapher  clerks;  Agent  telegraphers;  Station  agents  (non-telegraphers);  Station  masters 
and  assistants;  Policemen  and_watchmen. 


1  Report  of  the  Railroad  Wage  Commission,  page  102,  April  30,   1918. 
=*  Railroad  Wage  Commission,  page  98,  April  30,  1918. 
"Railroad  Wage   Commission,  r^age  20,   April  30,   1918. 


TEACHERS'  SALARIES  AND  SALAR\'  SCHEDULES 


113 


thousands  are  unable  to  read  or  write,  and  tens  of  thousands  cannot 
speak  the  English  language  and  have  to  be  supervised  by  one  of  their 
own  nationality,  and  yet  they  are  better  cared  for  financially  than  the 
teachers  of  the  nation. 

The  Pullman  porter  who  during  191 7  received  $40  a  month  and 
the  bonus  and  extra  salary  from  the  company,  had  a  salary  of  $568. 
This  was  increast  by  "tips"  and  reduction  on  meals  until  in  many 
instances  these  men  were  receiving  compensations  amounting  to  up- 
wards of  $1,000 — better  wages  by  two  or  three  hundred  dollars  than 
400,000  teachers  received  during  the  same  year. 

TABLE    LXII 

NUMBER  OF  INCOME  RETURNS  FILED  FOR  1916  BY   CERTAIN  OCCUPATIONS  COM- 
PARED WITH  THE  TOTAL  NUMBER  OF  PERSONS  ENGAGED  IN  SUCH  OCCUPA- 
TIONS, AS   LISTED    IN   THE   CENSUS   OF   1910.* 


Occupations 


No.  of  returns 
filed  in  1916 


No.  of 

persons  as  per 

census  of  1910 


Per  cent 

filing 

returns 


Architects 

.Authors,  editors,  reporters,  etc 

Clergymen 

Engineers,  civil,  mining,  etc 

Lawj-ers  and  judges 

Medical  profession, — physicians,  surgeons,  oculists,  den- 
tists, nurses,  and  otliers 

Public  service,  civil 

Public  service,  military 

Theatrical  profession, — actors,  singers,  musicians 

Teachers, — kindergarten  to  university,  and  school  and  col- 
lege officials 

Agriculturalists, — farmers,  stockraisers,  orchardists,  etc. 

Real-estate  brokers,  agents,  and  salesmen 

Stock  and  bond  brokers 

Brokers,  all  others , 

Commercial  travellers 

Insurance  agents  and  solicitors 

Lumbermen 

Manufacturers 

Merchants  and  dealers,  storekeepers,  jobbers,  commission 
merchants  etc 

Mine  owners  and  operators 

Saloonkeepers 

Theatrical  business, — owners,  managers,  etc 

Alll  other  business 


1,419 
2,529 
1,671 
6,628 
21,273 

20,348 

2,992 

5,459 

914 

2.919 

14,407 
6,146 
2,839 
7,479 

12,274 
7,243 
1,319 

23,631 

59,363 

2,554 

1,311 

811 

18,605 


16,613 

8.54 

38,750 

6.53 

118,018 

1.42 

58.963 

11.24 

112,149 

18.97 

291,942 

6.97 

382,138 

.78 

77,153 

7.08 

167,607 

.55 

614,905 

.47 

6,047,615 

.24 

125,862 

4.88 

13,729 

20.68 

36,016 

20.77 

268,522 

4.57 

88,463 

8.19 

12,263 

10.76 

235,107 

10.05 

1,246,077 

4.36 

14,287 

17.88 

68,215 

1.92 

31,418 

2.58 

101,868 

18.26 

*Treasury  Dept.,  U.  S.  Internal  Revenue.  Statistics  of  Income,  1916,  pg.  7 

Table  LXII,  showing  the  number  of  income  returns  filed  for  1916 
by  certain  occupations,  compared  with  the  total  number  of  persons 
engaged  in  such  occupations  as  listed  in  the  census  of  1910,  shows 
from  another  angle  whether  teachers  are  overpaid  in  comparison  with 
other  occupations.  The  number  filing  returns  indicates  the  number 
who  had  for  1916  an  income  of  $3,000  or  over.  Only  one  class  has 
a  smaller  percentage  filing  income  returns  than  teachers,  and  that  is 
the  "agriculturalists — farmers,  stockraisers,  orchardists,  etc."  This  is 
explained  by  the  fact  that  so  much  of  the  farmer's  income  is  in  growth 
of  Stock,  aging  of  trees,  improvement  of  the  land,  and  so  little  of  it  in 
money  transactions ;  that  they  receive  in  "economic  value" — food  con- 
.sumed,  articles  exchanged  for — incomes  in  excess  of  estimates  which 
are  based  entirely  on  money  deposited  and  spent. 


114  .WrnOX.iJ.  EDiCATlOS  ASSOC  JATJOX 

According  to  these  returns  the  chances  that  you — a  teacher — might 
earn  an  income  of  $3,000  or  over  are  about  i^  times  greater  if  you 
should  become  an  actor,  i^  times  greater  by  entering  pubHc  civil 
service,  3  times  greater  in  the  clergy,  4  times  greater  for  saloonkeeping, 
5  times  greater  in  the  theatrical  business,  9  times  greater  in  store- 
keeping,  commercial  traveling  or  real-estate  agency,  14  to  20  greater 
in  publishing,  medicine,  military  service,  and  insurance  agents,  and 
from  20  to  44  times  greater  in  "any  other  occupation"  of  those  making 
income  returns.  What  a  "pull  away  from  teaching"  facts  such  as 
these  must  have  upon  the  ambitious  man  and  woman,  and  how  little 
"pull  toward  teaching"  the  people  of  this  country  are  willing  to  give 
in  the  shape  of  adequate  salaries ! 

The  following  wage  scale  when  put  into  a  yearly  wage  makes  the 
median  salary  for  elementary  teachers  in  New  York  City  $1,279  seem 
at  least  as  small  as  it  really  is. 

* 

NEW  WAGE  SCALE  ^ 

Prepared  by  Building  Trades  Employers'  Association 

The  latest  scale  of  wages  issued  by  the  Building  Trades  Employers'  Asso- 
ciation follows : 

Asbestos   Workers,   Insulators $6.40 

Bricklayers    7.00 

Carpenters,    all    Boroughs 6.00 

Cement    Masons    5.60 

Composition  Roofers,  Waterproof ers 4.75 

Elevator  Constructors 6.80 

Electrical  Workers  6.00 

Hoisting  Engineers    6.50 

House    Shorers 5.00 

Housesmiths,    Structural    7.00 

Housesmiths,    Finishers    6.40 

Marble  Cutters  and   Setters 6.00 

Marble   Carvers    6.50 

Metallic   Lathers    6.00 

Mosaic  Workers   5.50 

Painters    6.00 

Plasterers,   Brooklyn   and   Queens 7.00 

Plasterers,   other   Boroughs 6.50 

Plumbers    6.00 

Sheet  Metal  Workers 6.00 

Slate  and  Tile  Roofers 6.50 

Steamfitters   6.00 

Stone  Cutters  6.75 

Stone  Setters   7.00 

Tile  Layers  6.50 


From   the   Xow    ^'ork   Times,   M.Tv    iR,    tqiq. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  115 

The  lowest  of  these  wages  provides  a  salary  which  is  $207.75,  or 
16  per  cent,  more  than  the  median  salary  for  elementary  teachers, 
while  the  wage  for  bricklayers,  housesmiths,  plasterers,  and  stone 
setters  is  $812  (63  per  cent)  more  than  the  teachers. 

LABORERS  AND  THEIR  HIRE  ^ 
Some  Odious  Comparisons  with  the  Earnings  of  Educated  Folk 

In  our  most  expensive  New  England  city,  a  decade  ago,  drivers  of  wagons 
or  carts  which  transported  coal  from  its  storage  yards  to  the  sidewalks  of  the 
dwellings  where  it  was  to  be  burned  workt  ten  hours  a  day,  with  Saturday 
half-holidays  from  April  to  October.  They  received  from  $12  weekly  for  a 
driver  of  one  horse  to  $14  weekly  for  the  driver  of  a  three-horse  truck. 

If  the  schedule  of  hours  and  wages  which  the  drivers  now  propose — and 
propose  to  enforce — for  the  eleven  months  beginning  May  1,  1919,  goes  into 
eflfect,  drivers  will  receive  from  $24  to  $30  for  a  week  of  substantially  forty-four 
hours.  That  is,  they  will  work  eight  hours  a  day  except  on  Saturdays,  when 
the  day  will  end  at  noon.  Ten  holidays  a  year  will  be  recognized,  on  which 
the  men  will  rest  at  full  pay,  or  will  work  at  double  pay,  the  same  being  true 
of  Sundays.  Overtime  work  in  general  will  be  paid  at  the  rate  of  time  and 
a  half. 

A  coal  driver  of  the  highest  class  in  Boston,  then,  will  receive  a  salary  of 
$1,560  a  year  for  working  about  as  many  hours  a  day  as  the  average  office 
worker,  for  less  time  than  most  teachers  are  required  to  give.  Overtime  might 
easily  add  to  this  the  $140  necessary  to  bring  it  up  to  $1,700  a  year.  If  we  speak 
in  terms  of  remuneration,  we  shall  no  longer  speak  of  the  man  who  drives  the 
coal  wagon  with  anything  but  respect.  As  for  "coal  heavers,"  their  wages  have 
experienst  a  similar  advance,  and  they  get  $24  a  week  instead  of  the  $9  they 
received  twenty  years  ago. 

Comparisons,  with  their  damnable  iteration,  are  still  necessary.  The  man 
who,  after  eight  to  ten  years  of  continuous  study  above  the  so-called  common 
school  grades,  graduates  from  the  university,  may  fortunately  secure  a  position 
as  instructor  in  his  college  at  $1,250  a  year,  this  being  on  a  new  and  "modern" 
schedule.  If  he  is  not  satisfied  with  that  remuneration  he  may  take  a  six  weeks' 
course  in  chaufif curing,  and  get  a  position  at  the  wheel  of  a  coal  truck,  which 
will  pay  him  $1,500  and  possibly  $1,700  a  year.  Or,  if  he  is  an  idealist,  he  may 
study  three  years  longer  and  receive  as  a  minister  of  the  Gospel  a  salarv  of 
$1,000  or  $1,100  a  year. 

This  reprint  from  the  Hartford  Times  appeared  in  the  New  York 
Times  of  May  18,  1919.  During  the  present  year  many  articles  and 
editorials  calling  attention  to  the  financial  needs  of  teachers  have 
appeared  in  the  leading  newspapers  of  the  country.  The  Pictorial 
Review,  the  Literary  Digest,  the  Independent,  the  Nation  and  others 
featured  articles  on  this  subject  and  widely  advertised  them.  The 
fact  that  these  important  moulders  of  public  opinion  are  interested  in 
the  schools  and  because  of  that  interest,  concerned  about  the  pay  of 
teachers,  gives  evidence  that  the  financial  exploitation  of  teachers  bv 

'  From   the  New   York  Times.   May    i8,   loiq. 


116  NATIONAL  EDUCATION  ASSOCIATION 

an  unthinking,  because  uninformed,  public  is  about  at  an  end.  The 
purpose  in  making  comparisons  with  wage  earners  in  other  fields  of 
work  is  to  show  that  teaching  is  not  so  financially  attractive  as  many 
lines  of  work  requiring  almost  no  preparation.  Some  people  have 
been  trained  to  think  that  there  are  other  rewards  to  teaching  which 
compensate  for  the  enforced  poverty  which  it  imposes.  This  does  not 
take  into  account  the  elements  of  ambition  and  social  pride — legitimate 
incentives  to  progress.  It  is  not  always  a  matter  of  whether  a  teacher 
can  live  upon  the  salary  paid,  but  whether  this  same  individual  can 
live  as  well  and  support  his  family  as  well  on  that  salary  as  he  would 
be  abe  to  do  in  some  other  work.  It  is  the 'answering  of  this  question 
in  the  negative,  so  many  times,  which  takes  out  of  teaching  the 
ambitious  and  progressive  man  or  woman — the  ones  who  should  above 
all  others  be  kept  in  the  work,  if  possible. 

When  the  salaries  of  teachers  are  raised  to  a  place  where  the  men 
and  women  who  prepare  for  the  work  can  be  happy  in  it,  proud  of  it, 
freed  from  constant  financial  worry  and  able  to  pay  their  share  of  the 
social  and  civic  activities  of  the  city  in  which  they  work,  then,  and 
only  then,  will  teaching  attract  the  kind  of  men  and  women  who 
should  and  can  instruct  the  citizens  of  tomorrow. 

From  an  extensive  study  of  statistics  obtained  from  a  typical  New 
York  City  Draft  Board,^  it  was  found  that  elementary  teachers  in  New 
York  City  are  paid  practically  the  same  wage  as  butchers,  chauffeurs, 
clerks,  machinists,  tailors  and  waiters,  almost  none  of  which  require 
any  special  preparation,  and  in  fact,  the  returns  would  indicate  that 
a  majority  of  the  followers  of  these  other  lines  of  work  have  not  com- 
pleted the  elementary  schools. 

It  is  further  shown  that  the  financial  rewards  of  becoming  an 
actor,  an  engineer,  a  lawyer,  a  manager,  a  manufacturer,  merchant 
or  salesman  are  very  much  greater  than  those  of  teaching ;  in  fact,  the 
median  salaries  for  actors,  lawyers,  managers  and  manufacturers  are 
in  excess  of  the  median  salaries  even  for  high-school  teachers, — the 
best  paid  high-school  teachers  in  the  United  States.  These  figures 
would  be  even  more  disparaging  to  teachers  if  the  earnings  for  the 
men  of  the  first  and  second  draft  had  not  been  taken  one  and  two 
years  respectively  before  the  salaries  of  teachers. 

These  data  also  showed  a  rather  consistent  advance  in  salary  with 
increase  in  age  except  for  certain  occupations  where  age  affects  the 
limit  of  maximal  efficiency,  such  as  laborers,  chauffeurs,  clerks,  etc. 

There  is  a  stronger  tendency  for  salary  to  increase  with  increase 


1  Local  Draft  Board  13J,  Nfw  York  City.  Dr.  N.  L.  Engelhardt,  Chairman.  Permis- 
sion was  obtained  from  Provost  Marshal  General  Crowder  to  use  the  data  providing  that  it 
should  be  taken  in  such  a  way  that  no  individual  could  be  Identified.  Over  2000  quastion- 
naires,  selected   at  random   from   both   registrations,  were  used   in   the  stud\ . 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  117 

in  the  number  of  years  of  schooling.  There  is  also  a  very  noticeable 
break  with  the  groups  receiving  salaries  over  $2,000,  in  regard  to  the 
amount  of  schooling.  In  such  groups,  the  median  amounts  of  school- 
ing are  consistently  over  ten  years,  showing  that  even  two  years  of 
high  school  training  is  a  good  financial  investment. 

If  individual  cases  are  considered,  rather  than  the  medians  of 
groups,  it  is  readily  seen  that  the  range  of  salary  for  the  different 
occupations  is  much  greater  than  for  teachers.  A  stable  sweeper  earns 
$1,600  a  year,  a  newspaper  route  man  $1,750,  a  riding  teacher  $1,800, 
a  bootblack  $2,000,  a  waiter  $2,300  plus  tips,  a  junk  dealer  $2,500  and 
a  bartender  $3,000  plus  tips.  None  of  these  men  have  more  than 
an  elementary  education,  and  three  of  them  had  only  four  years  of 
schooling.  These  are  not  typical  of  the  groups,  but  show  possibilities 
of  financial  reward  which  are  not  available  to  the  large  majority  of 
elementary  teachers.  From  these  results  it  is  evident  that  in  New 
York  City  the  teachers  are  not  paid  as  well  as  the  followers  of  other 
occupations  with  less  training.  Even  tho  New  York  City  has  done  so 
well  in  the  salaries  paid  its  teachers,  in  comparison  with  salaries  paid 
elsewhere,  it,  nevetheless,  pays  them  relatively  little  when  compared 
to  the  schedule  of  pay  which  exists  for  other  work  in  the  city.  This 
part  of  the  study  makes  evident  the  principle  that  salary  schedules 
should  be  adjusted  to  the  cost  of  living  in  the  particular  locality. 

This  is  a  principle  which  has  not  been  consciously  used  in  estab- 
lishing schedules  of  pay  for  teachers  and  yet  is  one  which  can  not  be 
ignored  by  any  city  without  putting  a  serious  handicap  upon  that  city 
in  its  competition  for  better  trained  teachers. 

CONCLUSIONS 

Part  I — Economic  Aspects  of  the   Ediicational   Emergency 

1.  The  present  educational  emergency  is  traceable  in  practically  all  of  its 
aspects  to  the  insufficient  salaries  paid  to  teachers  thruout  the  country. 

2.  The  cost  of  living  has  more  than  doubled  in  the  last  three  years,  while 
the  increases  in  teachers'  salaries  for  the  United  States  in  the  same  time  has 
been  about  12  per  cent.  As  a  consequence,  nearly  half  the  teachers  of  the 
country  are  compelled  to  spend  more  than  their  salaries. 

3.  Teachers,  as  well  as  other  salaried  workers,  have  not  had  their  salaries 
increast  in  anything  like  the  same  degree  that  other  workers  have.  Conse- 
quently, teachers  are  constantly  being  forced  to  a  lower  standard  of  living  and 
a  resulting  lower  standard  of  efficiency,  because  they  can  not  meet  the 
higher  demands  for  rent,  food,  clothing,  books,  etc. 

4.  From  various  studies  of  budgets  for  many  occupations  in  relation  to 
the  cost  of  living,  it  is  estimated  that  a  minimal  salary  of  $1,200  should  be 
establisht  for  the  entire  country,  and  paid  on  the  basis  of  twelve  months.  Too 
many  teachers  are  living  below  the  margin  of  efficiency,  when  hundreds  of  them 
returned  their  questionnaires  annotated  with  remarks   such  as :   "I  work  in   a 


118  SATIOXAL  EDUCATIOX  ASSOCIATION 


drug  store  during  summer,"  "I  do  house  work  for  my  room  and  board,"  "I  take 
in  sewing  to  meet  expenses,"  "My  summer  expenses  are  paid  by  my  family," 
"I  can't  save  enough  money  to  go  to  summer  school." 

5.  Teachers  are  paid  much  less  than  the  members  of  other  professions — 
ministry,  law,  medicine,  engineering,  etc.  The  median  salaries  are  not  only 
larger,  but  the  range  of  salaries  is  very  much  greater,  thus  oflfering  more  promise 
to  the  capable,  the  hard-working  and  the  ambitious  individual  in  the  professions. 
This  is  lacking  in  teaching. 

6.  Teachers  are  paid  much  less  than  a  great  many  of  the  unskilled  laborers 
whose  preparation  is  very  much  shorter,  and  whose  expenses  for  "professional 
upkeep"  are  very  much  less.  Existing  salaries  paid  to  teachers  can  be  said  to 
almost  place  a  penalty  upon  adequate  preparation,  since  there  is  no  opportunity 
for  an  adequate  return  upon  the  investment  of  time  and  money  necessary  to 
the  securing  of  that  preparation. 

7.  A  teacher's  work  is  most  effectively  done  when  she  is  in  good  health, 
free  from  worry,  able  to  participate  in  the  community  activities,  and  when  she 
has  the  social  respect  of  the  community.  These  things  make  her  a  leader,  a 
moulder  of  citizens,  a  creator  of  ideals,  and  yet  practically  all  these  elements 
of  success  are  denied  a  majority  of  teachers  by  the  insufficient  salaries  paid. 

8.  New  York  City,  which  pays  relatively  high  salaries  when  compared  with 
other  cities,  in  reality  pays  its  teachers  no  better  than  the  workers  in  many  of 
the  unskilled  occupations. 

9.  The  study  of  the  salaries  of  the  2,015  draft  registrants  shows  that  there 
is  in  other  lines  of  work  an  increase  in  salary  in  direct  relation  to  an  increase 
in  age,  and  also  in  relation  to  the  increase  in  the  amount  of  schooling  received. 

10.  The  additional  salary  received  per  year  of  increast  age  is  much  less 
than  the  additional  salary  received  per  added  year  of  schooling. 

11.  Occupations  which  demand  additional  preparation,  with  the  exception 
of  teaching,  received  higher  median  salaries  than  those  where  education  beyond 
the  elementarv  scliools  is  not  essential. 


CHAPTER  V 

SALARY  SCHEDULES 

The  principle  of  fixing  a  schedule  of  salaries  for  teachers  is  not 
a  new  one  in  education,  either  in  European  countries  or  in  the  United 
States.  Any  extensive  use,  however,  of  salary  schedules  is  a  develop- 
ment of  the  last  30  years.  Thomas  W.  Bicknell,  President  of  the 
National  Education  Association,  advocated  in  his  presidential  address 
at  the  meeting  of  the  Association  at  Madison,  Wisconsin,  in  1884,  the 
establishment  of  salary  schedules  in  public  school  systems,  and  set 
forth  the  four  following  principles:^ 

1.  The  best  talent  and  largest  experience  will  be  found  in  our  primary 
grades  of  school. 

2.  Our  best  primary  teachers  and  our  best  high  school  teachers  will  receive 
equal  salaries,  and  these  the  maximum. 

3.  A  sliding  scale  of  salaries  will  be  adopted,  based  upon  qualifications  and 
experience,  ranging  from  a  minimum  for  beginners  to  the  maximum  for  the 
well-establisht  and  successful  instructor. 

4.  These  salaries  will  never  be  subject  to  a  decrease  during  the  term  of 
office  of  any  incumbent. 

A  few  of  the  larger  cities  in  the  United  States  have  had  establisht 
salary  schedules  sirxe  before  the  time  of  the  Civil  War,  but  these  are 
few  in  number,  and  the  schedules  were  more  nearly  lists  of  the  salaries 
which  had  been  paid,  rather  than  schedules  of  proposed  salaries  to 
be  paid. 

In  the  N.  E.  A.  Report  of  Salaries  of  Public  School  Teachers,  the 
schedules  of  547  cities  are  reported  for  1905.  The  minimal  salaries, 
the  increases,  the  maximal  salaries  and  the  actual  average  salaries 
are  recorded.  A  further  study  of  salary  schedules  was  made  in  1913" 
by  the  National  Education  Association.  In  1914  the  United  States 
Jkireau  of  Education  published  as  Bulletin  16,  *'The  Tangible  Re- 
wards of  Teaching,"  in  which  all  the  data,  available  at  that  time,  on 
the  question  of  teachers'  salaries  was  presented.  These  two  reports 
give  the  salary  schedules  o"f  many  of  the  typical  cities  of  the  country, 
and  indicate  a  decided  increase  not  only  in  the  number  of  cities  having 
schedules  but  also  in  the  adequacy  of  the  schedules  themselves.  In 
1918  Commissioner  Claxton  of  the  United  States  Bureau  of  Education 
collected  data  on  the  salary  schedules  in  108  cities.  In  the  present 
study  237  cities  of  the  365  replying  answered  the  question  "'Do  you 
have  an  establisht  salary  schedule"  in  the  affirmative. •■  Since  this  is  a 
representative  sampling  of  the  cities  thruout  the  country,  it  indicates 


1  Address  and   Proceedings  of  N.   E.  A.,   1884,  page  49. 
=*  N.  E.  A.  Report  on  Teachers'  Salaries.  Part  III. 
sSee  Table  XXVII. 


119 


120  XATIONAL  EDUCATION  ASSOCIATION   ■ 

the  extremely  rapid  recent  growth  of  the  salary  schedule  principle  in 
the  United  States.  Its  development  has  been  so  rapid  that  in  a  great 
many  cases  it  has  been  the  result  of  temporary  expediency,  rather  than 
of  a  conscious  desire  to  further  the  progress  of  education.  In  a  great 
many  instances  where  salary  schedules  have  been  advocated  or  secured 
thru  the  efforts  of  teachers'  organizations,  they  have  been  primarily 
for  the  purpose  of  establishing  higher  salaries  and  securing  them  more 
uniforml}^  thruout  the  teaching  group,  and  also  to  guard  against 
favoritism  or  "local  pull"  in  the  granting  of  higher  salaries.  In  many 
cases,  where  the  salary  schedules  have  been  advocated  and  adopted 
by  school  boards,  it  has  been  for  the  purpose  of  establishing  minimal 
and  maximal  salaries  at  the  lowest  figures  possible,  and  for  the  pur- 
pose of  safe-guarding  themselves  against  having  to  pay  more  than 
these  figures  to  any  individual  teachers.  This  at  the  same  time  safe- 
guarded them  from,  any  accusations  of  favoritism.  The  large  num- 
ber of  superintendents  and  school  officials  who  report  that  their  salary 
schedules  are  "no  longer  adequate"  or  "are  being  revised"  or  admit 
their  insufficiency  by  the  granting  of  special  bonuses,  would  indicate 
that  the  above  described  conditions  are  true.  Such  returns,  as  those 
obtained  from  the  State  Superintendents,  reported  in  Chapter  III, 
would  indicate  the  strong  tendency  to  adjust  teachers'  salaries  to  the 
cost  of  living,  and  in  addition,  make  them  commensurate  with  the  kind 
of  work  done.  In  order  that  this  may  be  done,  certain  principles 
governing  the  making  of  salary  schedules  must  be  evolved,  and  quite 
generally  accepted.  As  a  means  of  throwing  some  light  upon  this 
problem,  some  of  the  more  recent  advances  in  other  countries  will 
be  given. 

The  important  part  which  the  French  schools  have  played  in  the 
development  of  national  morale  is  now  well  recognized.  During  the 
early  part  of  the  war,  the  efficiency  of  the  schools  was  seriously 
threatened  by  the  heavy  enlistment  of  the  teachers  in  the  armies  of 
defense.  In  addition  to  government  regulations  relative  to  keeping 
schools  in  session,  salary  schedules  were  provided  which  materially 
increast  the  financial  reward.  A  national  attempt  was  made  to  keep 
the  schools  at  as  high  degree  of  efficiency  as  they  had  been  at  the 
outbreak  of  the  war. 

During  the  early  part  of  the  war  England  met  its  educational 
emergency,  evidenst  in  one  way  among  others  by  an  extreme  shortage 
of  competent  teachers,  by  the  granting  of  bonuses,  which 'in  no  cases 
exceeded  lo  per  cent,  whereas  living  expenses  had  increast  several 
times  that.  This  plan  not  proving  adequate,  further  provisions  were 
taken  in  the  form  of  restrictions  against  increast  rents.  As  this 
proved  no  more  effective  than  the  bonus,  and  was  in  reality  but  a  small 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  121 

bonus  in  another  form,  a  departmental  committee  was  appointed  to 
inquire  into  the  principles  which  should  determine  the  construction  of 
scales  of  salaries  for  teachers  in  the  elementary  schools.  This  com- 
mittee advocated  the  establishment  of  a  minimal  salary  of  $500  for 
men,  and  $450  for  women.  Several  schedules  were  proposed  which 
went  from  these  minimal  to  maximal  salaries  of  $1,050  to  $1,500,  by 
varying  increments  over  varying  periods  of  time  at  varying  rates. 

The  British  colony  of  Cape  of  Good  Hope  has  accomplisht  much 
more  along  the  line  of  adequate  salary  schedules  than  has  England. 
In  its  Educational  Ordinance  of  September,  191 7,  all  teachers  are 
divided  into  three  classes  (A,  E,  C),  according  to  the  amount  of 
education  and  the  certificate  held.  Salary  schedules  vary  for  these 
classes  of  teachers.  They  are  made  low  for  Class  C,  the  lowest  class, 
in  order  to  put  a  premium  upon  more  training  and  the  securing  of 
better  certificates.  Provision  is  also  made  for  leaves  of  absence  for 
advanst  study,  and  for  additions  to  salaries  where  any  teacher  holds 
a  higher  certificate  than  the  nature  of  the  work  calls  for.  Other 
elements  of -flexibility  and  rewards  are  oft'ered  to  the  ambitious  teacher, 
in  the  form  of  pensions,  expenses  home  for  vacations,  if  the  railroad 
fare  exceeds  $10,^  etc. 

The  salaries  for  principal  teachers  in  schools  with  more  than  150 
pupils  vary  according  to  the  size  of  the  schools  from  $2,000  to  $3,500 
for  men  and  $1,300  to  $2,050  for  women  in  high  schools;  from  $1,600 
*lo  $2,500  for  men  and  $1,150  to  $1,600  for  women  in  intermediate 
schools;  and  from  $1,325  to  $2,250  for  men  and  $900  to  $1,550  for 
women  in  primary  schools.  The  regular  teachers  vary  according  to 
their  classification  as  follows  : 

Men  Teachers 

Grade  A. — Standards  C,  D,  E:  $1,100  rising  by  three  annual  increments  of 
$100  and  twelve  of  $62.50  to  $2,150. 

Grade  B. — Standards  A,  B.  VI  and  VII :  $800  rising  by  three  annual  incre- 
ments of  $100  and  twelve  of  $42.50  to  $1,610. 

Grade  C. — All  lower  classes  including  fifth:  $600  rising  by  three  annual 
increments  of  $75  and  twelve  of  $42.50  to  $1,335. 

Women  Teachers 

Grade  A. — Standards  C,  D,  E. :  $800  rising  by  three  annual  increments  of 
$50  and  twelve  of  $31.25  to  $1,325. 

Grade  B. — Standards  A,  B,  VI  and  VII :  $600  rising  by  three  annual  incre- 
ments of  $50  and  twelve  of  $25  to  $1,050. 

Grade  C. — All  lower  classes  including  fifth:  $500  rising  by  three  annual 
increments  of  $50  and  twelve  of  $25  to  $950. 


1  Salaries  are  all  stated  in   terms   of  dollars   instead   of  pounds  in   order  thtt  th»y   m»r 
be  more  easily  compared. 


122  NATIONAL  EDUCATION  ASSOCIATION 

The  standard  which  has  been  set  by  the  Colony  of  the  Cape  of  Good 
Hope  is  particularly  noteworthy  when  it  is  realized  that  these  salaries 
are  better  in  proportion  to  the  cost  of  living  in  that  Colony  than  the 
same  figures  would  indicate  in  this  country.  An  estimate  of  this  may 
be  had  by  knowing  that  "board  and  room"  for  a  teacher  in  the  various 
government  boarding  schools  of  the  Colony  is  estimated  at  about  $200 
per  year. 

In  Canada  teachers'  salaries  is  a  subject  of  much  discussion  at  the 
present  time.  P>om  a  study  made  by  George  J.  Trueman  of  Stan- 
stead/  Quebec,  we  learn  that  for  the  year  1915-16  the  average  salary 
of  631  Catholic  women  teachers  was  $198  per  year;  the  average  salary 
for  1564  Protestant  women  teachers  was  $563;  the  average  salary  of 
400  Catholic  men  teachers  was  $793  and  of  136  Protestant  men 
teachers,  $1,477.  I^i  the  Province  of  Quebec  from  the  same  study,  we 
find  that  the  average  monthly  salary  for  12  months  for  1915-16  was  as 
follows : 

Rural   elementary    teachers $24.27 

Elementary  schools  in  towns ".     34.73 

Rural  model  schools 40.70 

Rural   academies — grades   8  to   11 61.03 

Suburban  academies — grades   1   to  7 47.22 

In  some  of  the  western  provinces  the  shortage  of  teachers  has  be- 
come so  acute  that  they  are  advertising  in  eastern  Canadian  papers  for 
teachers,  with  a  provincial  government  guarantee  of  $840  as  a  minimal 
salary  in  rural  schools.  This  is  tending  to  elevate  the  standard  thru- 
out  the  whole  dominion,  and  will,  undoubtedly,  result  not  only  in  the 
better  payment  of  teachers,  but  also  in  the  securing  of  more  adequate 
preparation. 

In  the  United  States,  in  addition  to  the  change  mentioned  above 
regarding  the  making  of  salary  schedules  more  numerous  in  the  cities 
of  all  sizes  thruout  the  country,  there  has  been  a  rapidly  developing 
tendency  to  adjust  the  salary  schedules  to  various  divisions  of  school 
work.  This  has  resulted  in  the  formation  of  many  very  elaborate 
and  cumbersome  salary  schedules.  Certain  communities  have,  how- 
ever, reacted  against  this  tendency  and  have  gone  to  the  other  extreme 
of  establishing  minimal  and  maximal  salaries  for  elementary,  inter- 
mediate and  high  school  teachers,  with  practically  no  dilTerentiation  of 
salary  within  these  groups  for  any  other  item  than  length  of  teaching 
experience.  In  order  to  illustrate  the  salary  schedule  situation  as  it  is 
at  the  present  time,  several  actual  schedules  will  be  printed  as  they 
were  forwarded  to  the  National  Education  Association  during  the  early 
part  of  1919.     These  schedules  are  not  submitted  as  models,  either  of 

1  Truetnan,  Geo._  J.,  "School  Funds — Province  of  Quebec."  Teachers  College  Contribu- 
tions to  Education  No.    io6. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  123 

what  schedules  should  or  should  not  be.  They  were  selected  from  the 
schedules  sent  in  from  cities  within  each  size  group.  They  are  not 
in  all  cases  even  typical  of  the  salary  schedules  within  the  cities  of  that 
size,  but  they  are  all  worthy  of  study  for  one  or  more  of  the  principles 
of  schedule  making  which  they  illustrate.  The  standards  set  in  some 
of  these  schedules,  particularly  those  of  Newark,  Highland  Park  and 
Cleveland  Heights  promise  well  for  the  solution  of  the  salary  problem, 
since  they  show  what  was  actually  being  done  at  the  close  of  the  year 
1918-19.  No  elaborate  criticism  of  any  of  these  schedules  will  be 
attempted,  since  the  standards  and  the  rules  set  forth  are  determined 
by  local  conditions.  When  all  teachers  and  school  patrons  are  intel- 
ligently interested  in  the  permanence  and  efficiency  of  the  educational 
system,  it  will  be  much  easier  to  establish  salary  schedules  which  more 
closely  approximate  ideal  conditions.  It  is  one  purpose  of  this  study 
to  so  present  the  problem  of  teachers'  salaries  and  the  arrangement  of 
salary  schedules  that  this  necessary  interest  may  be  at  least  started, 
and  lead  to  many  further  investigations.  When  enough  of  these  re- 
sult in  reliable  data,  it  will  be  possible  to  take  steps  toward  the 
standardization  of  salary  schedules  and  the  conditions  under  which 
teachers  work,  which  are  not  thought  possible  at  the  present  time. 

SALARY  SCHEDULES 

SCOTIA,  NEW  YORK 

General  Regulations 

Increases  in  salary  shall  be  made  September  1  of  each  year,  on  a  basis  of 
merit  to  be  determined  by  Committee  on  Teachers  and  Instruction. 

Principals  and  Special  Teachers 

The  Principals,  Librarian,  teachers  of  Music,  Drawing,  Household  and 
Manual  Arts,  Physical  Education,  or  any  other  so-called  "special  subjects"  are 
not  on  a  regular  schedule,  but  shall  receive  such  compensation  as  the  Board  of 
Education,  after  considering  the  recommendations  of  the  Committee  on  Teachers 
and  Instruction,  shall  determine. 

Regular  Teachers 

1.  Regular  teachers  shall  receive  such  compensation  for  their  initial  year 
as  their  training,  length  and  quality  of  experience,  and  the  nature  of  their  duties 
shall  warrant. 

2.  An  annual  increase  from  $0.  to  $100  shall  be  granted  to  each  regular 
teacher  in  the  system,  who  is  not  a  teacher  of  so-called  "special  subjects." 
There  shall  be  an  additional  increase  of  $40  upon  the  completion,  with  credit,  of 
two  full  courses,  previously  approved  by  the  Supervising  Principal,  in  a  summer 
school.  There  shall  also  be  a  further  increase  of  $40  for  a  second  summer's 
course  upon  the  same  conditions. 


124  NATIONAL  EDUCATION  ASSOCIATION 

Increases  will  be  granted  in  accordance  with  above,  until  final  maximums 
have  been  reacht  as  follows : 

High  School   $1,300 

Junior   High    1,200 

Elementary  School   1,100 

Principals— High   School  1,500 

Principals — Elementary   School  1,300 

Adopted  February  14,  1919.  ' 


SCHEDULE  OF  SALARIES  FOR  MILLVALE,  PA.,  PUBLIC  SCHOOLS 
Adopted  by  Board  of  Directors  June  1,  1918. 

Grades  One  and  Seven 

Without  experience   $65  per  month 

One  year's  experience  70  per  month 

Two  years'  experience   75  per  month 

Three  years'  experience  80  per  month 

Grades  Two,  Three,  Four,  and  Kindergarten 

Without  experience   $55  per  month 

One  year's  experience    60  per  month 

Two  years'  experience   65  per  month 

Three  years'  experience  70  per  month 

Grades  Five  and  Six 

Without  experience   $60  per  month 

One  year's  experience    65  per  month 

Two  3'ears'  experience   70  per  month 

Three  years'  experience   75  per  month 

Grade  Eight 

Without   experience $70  per  month 

One  year's  experience  75  per  month 

Two  years'  experience   80  per  month 

Three  years'  experience  85  per  month 

Note. — When  salaries  have  been  once  fixt  at  the  opening  of  a  school  terra, 
they  will  remain  constant  thruout  that  term.  If  a  teacher  should  be  transferred 
to  a  new  grade  during  the  school  term,  she  will  receive  the  salary  of  the  grade 
to  which  she  has  been  transferred,  according  to  experience. 


TliACtlEKS'  SALARIES  ASD  SALARY  SCHEDULES 


123 


OKLAHOMA   CITY   SALARY   SCHEDULES   1919-1920 

Years   of   Service (1)  (2)  (3)  (4)  (5) 

Grades  and  Kindergarten $80           $90        $100  $110  $115     Non-normal  grad. 

120     Normal  graduate 

As5t.  Kindergarten 70  80  90 

Domestic  Science 90             95           100  110  115 

Manual  Training 100           110           115  120  125 

Supervisors 1400         1500         1600  1700  1800 

H.  S.  Dept.  Heads 1400         1500         1600  1700  1800 

H.  S.  Asst.  Academics 1200         1300         1400  1500  1600 

Prin.  &  Asst.  Principal  of  Higli  School,  fi.xt  by  Board. 

Substitutes         (Grades)         $4.50  per  day 
Substitutes         (H.  S.)  5.00  per  day 

PRINCIPAL'S  SALARIES 


Years   of   Service (1) 

Number    of    Teachers,   including 
Principal. 

1  to    6  fixt  by  Board 

7  to  10 $1300 

11  to  13 1400 

14  to  16.. 1500 

17  to  24 1700 


(2) 


(3) 


(4) 


$1350 

$1400 

$1500 

1500 

1600 

1700 

1600 

1700 

1800 

1800 

1900 

2000 

SALARY  SCHEDULE  FOR  THE  ELEMENTARY  TEACHERS  OF 

LACONIA,  N.  H. 

Effective  January  1st,   1918. 

First  year $500  minimum 

Second  year 550         " 

Third  year 600         " 

Fourth  year 650         " 

Fifth  year 700  maximum 

A  principal  of  a  building  of  three  or  more  rooms  wil-  receive  $25  per  year  in  addition  to  her  regular  salary. 
An  additional  $25  will  be  given  to  a  teacher  after  three  years'  experience  for  taking  a  summer  school 
course  approved  by  the  superintendent  of  schools. 


CLEVELAND  HEIGHTS  SCHEDULE 


OLD  AND  NEW  SALARY  SCHEDULE 


New 

New 

Year 

Old 

Class  "A" 

Class  "A" 

Old 

New 

Old 

New 

Class  "A" 

High  School 

Elementary 

Class  "B" 

Class  "B" 

Class  "C" 

Class  "C" 

1 

$700 

$1000 

$1000 

$600 

$750 

$500 

$600 

2 

775 

1100 

1100 

675 

825 

550 

675 

3 

850 

1200 

1200 

725 

900 

600 

725 

4 

950 

1300 

1300 

800 

975 

650 

800 

5 

1000 

1400 

1400 

850 

1050 

700 

850 

6 

1100 

1500 

1500 

925 

1100 

750 

925 

7 

1200 

1600 

1600 

1000 

1175 

800 

1000 

8 

1300 

100 

1700 

1075 

1250 

850 

1075 

9 

1400 

1800 

1800 

1150 

1300 

900 

1150 

10 

1500 

1900 

1200 

1375 

950 

1200 

11 

1600 

2000 

1250 

1450 

1000 

1250 

12 

1700 

2100 

1300 

1500 

1100 

1300 

13 

1800 

2200 

1400 

1600 

1200 

1400 

14 

2000 

2300 

Heads  Depts. 
2400 
2500 
2  .00 
2700 
2800 
2900 
3000 


Class  "A" — Teachers  having  diplomas  from  college, 

or  college  and  normal  school. 
Class  "B" — Teacheia  hav'ns  dipomas  from  normal 

schoo'. 
Class  "C" — Teach  rs  having  diplomas  from  neither 

co'le       no     normal  school. 
Note: — The  system  is  no   tak.ng  any  more  teacher 

of  the   'C"  group. 


126 


NATIONAL  EDUCATION  ASSOCIATION 


SALARY  SCHEDULE  FOR  HIGHLAND  PARK  SCHOOLS 

Highland  Park,  Michigan.  In  effect  1917-18. 


Year 


1 


1.  High  School  Principal 

2.  Principal,  26  rooms  or  more. 

3.  Principal,  15-25  rooms 

4.  Principal,  9-14  rooms 

5.  Principal,  8  rooms 

6.  High  School  Head 

7.  High  School  Teacher 

8.  Grade  Teacher 

9.  Kindergarten  Teacher 

10.  Study  Room  Teacher 

11.  Nurses 

12.  Stenographers,  Clerks,  Book- 

keepers  

13.  Phone  Operator 

14.  Business  Officer 

15.  Supervisor  of  Buildings 

16.  Attendance  Officer 

17.  Summer  School  Teachers.etc 


$2400     $2640     $2880     $3120     $3360     $3600*  $3840     $4000 


2040 

2220 

2400 

2580 

2760 

2940 

3120* 

3300 

3500 

1860 

2040 

2220 

2400 

2580 

2760 

2940* 

3120 

3300 

2. 

1500 

1680 

1860 

2040 

2220 

2400 

2580* 

2760 

2940 

1080 

1200 

1320 

1440 

1560 

1680* 

1800 

1500 

1680 

1860 

2040 

2220 

2400 

2580* 

2760 

2940 

4. 

1200 

1320 

1440 

1560 

1680 

1800* 

6. 

1080 

1200 

1320* 

1440 

1560 

3. 

Same  as  No.  8.     If  teaching  only  one  session  25%  less. 
200  pupils,  if  qualifications  are  same,  same  as  No.  6;  less  than  200,  same  as  No. 
960       1080       1200       1320       1440       1560* 

720         840         960 

600         720         840  >•  5. 

Same  as  No.  4. 
Same  as  No.  4. 

1080       1260       1440       1620       1800       1980       2160 
Salary  $720-$840=$3.50  per  day.     $1200-S1400=$4.50  per  day. 
$960-$1080=$4.00  per  day.     $1560--S5.00  per  day. 

(Based  on  salary  already  received) 


Janitors  and  Engineers 

18.  Assistants — Men,  ab't  55  hrs. 

19.  Women ,  about  45  hrs.  per  wk. 

Stevens 

Angell  and  Thomson 

Ferris,  Ford  and  Willard .... 

High 

Engineers 


20, 
21, 
22 
23 
24, 
25.  Firemen,about  56  hrs.  per  wk. 


First 

Next 

Next   Next   Next 

3  mo. 

6  mo. 

6  mo.  9  mo.  Year 

$75 

$80 

$85    $90  * 

50 

55 

60* 

75 

80 

85     90* 

85 

90 

95    100    105* 

95 

100 

105    110    lis 

120 

125 

130    135    140 

Same  as  janito 

.  for  same  building. 

75 

80 

85     90* 

*One  must  be  of  exceptional  value  to  be  advanst  beyond  this  point. 

A.  Teachers  considered  satisfactorj'  are  to  be  advanst  each  year.  Those  not  successful  will  not  be  re-elected 
In  a  few  cases,  in  which  the  degi-ee  of  success  cannot  be  determined,  teachers  may  be  re-elected  without  increase. 

B.  Absence — When  a  teacher  is  absent,  all  or  part  of  the  salary  of  said  teacher  for  the  time  absent  may  be  de- 
ducted, at  the  discretion  of  the  Superintendent,  with  the  approval  of  the  Board  of  Education. 

C.  Substitute  Teachers — Substitute  teachers  shall  be  appointed  by  the  Superintendent  and  reported  to  the  Board 
of  Education  for  approval.  The  pay  of  each  substitute  shall  be  fixt  by  the  Superintendent  and  reported  to  the 
Board  of  Education  for  approval. 

Requirements — All  teachers  must  have  a  State  Life  Certificate  and  be  citizens  of  the  United  States.  Special 
requirements  below. 

1.  College  or  university  degree,  ten  years'  experience  as  a  teacher,  five  of  which  shall  be  as  a  high  school  principal 

2.  Two  years'  normal  course  and  college  or  university  degree.  Ten  years'  experience  as  a  teacher,  five  of  which 
shall  be  as  a  principal  of  a  graded  school. 

3.  Two  years'  normal  course.     Experience  elsewhere  to  be  credited  about  one-half. 

4.  College  or  university  degree.     Four  years'  experience  as  a  high  school  teacher. 

5.  Twelve  months'  service  with  two  weeks'  vacation. 

6.  College  degree  and  experience. 


TEACHERS'  SALARIES  ASD  SALARY  SCHEDULES 


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128 


XATJOXAL  EDUCATIOX  ASSOCIATION 


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TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


129 


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130  XATIONAL  EDUCATION  ASSOCIATION 


NEWARK    SALARY    SCHEDULE    (Continued) 


NOTES 


1.  Head  assistants  and  first  assistants,  teaching  classes  of  the  eighth  grade, 
shall  receive  $100  additional  while  teaching  such  grade. 

2.  First  assistants  and  head  assistants  teaching  the  eighth  grade,  promoted 
to  a  grammar  vice  principalship,  shall  be  paid  $100  in  addition  to  the  amount 
of  salary  they  received  at  the  time  of  their  transfer,  including  the  amount  paid 
for  teaching  the  eighth  grade. 

3.  Kindergarten  directresses  in  charge  of  kindergartens  having  more  than 
four  kindergarten  assistants  shall  receive  $100  additional  to  the  salary  schedule 
for  directresses. 

4.  Assistants  in  charge  of  classes  for  crippled  children  and  of  open  air 
classes  for  anaemic  children  shall  be  paid  in  accordance  with  the  schedule  for 
assistants  in  elementary  schools. 

5.  In  all  cases  of  promotion  of  teachers  to  higher  positions,  they  shall  be 
advanst  to  the  next  higher  salary  grade,  provided,  such  increase  shall  not 
change  the  date  of  the  annual  increase  fixt  prior  to  such  promotion. 

6.  All  teachers  must  serve  three  years  as  temporary  teachers,  upon  the 
completion  of  which,  if  satisfactory,  they  shall  enter  upon  the  first  year  of  the 
permanent  grade. 

7.  All  increases  of  salary  under  this  schedule  shall  be  based  upon  merit  and 
efficiency  to  be  ascertained  as  far  as  practicable  from  the  official  record  of  the 
Board  of  Education.  Such  increases  shall  be  recommended  by  the  Superin- 
tendent and  approved  by  the  appropriate  committee. 

8;  Teachers  absent  from  duty  on  account  of  furlough  or  other  excused 
absence  for  a  period  in  the  aggregate  not  longer  than  two  months  in  any  one 
year  shall  not  suffer  thereby  any  loss  of  time  in  reaching  the  next  higher  salary 
grade. 

9.  Principals  and  teachers  of  alternating  schools  which  have  been  in 
operation  for  at  least  one  year  shall  receive  an  additional  increase  of  5  per  cent 
of  their  salaries  for  such  services.  This  does  not  include  kindergarten  direc- 
tresses and  assistants  and  teachers  not  having  alternating  classes  and  teachers 
on  special  schedule. 

10.  No  salary  now  paid  shall  be  reduced  by  reason  of  this  schedule. 


TEACHERS-  SALARIES  AM)  SALARY  SCHEDULES  131 

ELEMENTS  TO  BE  CONSIDERED   IN   MAKING  SALARY 

SCHEDULES 

For  convenience  in  discussing  these  elements  they  have  been  groupt 
under  the  two  inckisive  headings  Economic  Elements  and  Educational 
Elements.  Many  of  these  elements  will  involve  principles  which  are 
rather  definitely  settled,  others  will  have  the  prestige  of  common  prac- 
tice, while  others  have  been  applied  successfully,  but  not  as  yet  to 
teachers. 

A.    ECONOMIC  ELEMENTS 
I.    Relation  of  Salary  Schedule  to  Wealth  of  Community 

As  long  as  the  question  of  the  payment  of  teachers  remains  one 
for  local  settlement  it  might  seem  that  it  would  be  somewhat  influenst 
by  the  per  capita  wealth  of  the  community.  A  casual  examination  of 
the  schedules  obtained  from  cities  over  the  entire  country  might  give 
weight  to  the  general  statement  that  the  more  wealthy  and  more 
rapidly  growing  communities  pay  larger  initial  salaries,  and  extend 
them  to  higher  maximal  salaries.  In  order  to  determine  the  degree 
to  which  the  above  generalization  is  true,  the  following  study  was 
made : 

One  hundred  cities  were  selected  from  the  "Financial  Statistics  of 
Cities  for  1916"  (Table  XXXII)  by  taking  each  alternate  city.  Since 
the  cities  are  arranged  alphabetically  according  to  size,  this  gave  a 
random  sampling  of  the  cities  in  the  country  with  a  population  in 
excess  of  30,000.  The  per  capita  wealth  was  secured  on  the  basis  of 
estimated  true  valuation  over  a  period  of  years  extending  from 
1910  to  1916.  The  average  amount  of  salary  per  elementary  teacher 
was  also  computed  for  the  same  period.  The  cities  were  then  rankt 
according  to  the  percentage  of  increase  or  decrease  in  per  capita 
for  1916  over  1910,  and  also  rankt  according  to  percentage  of  increase 
or  decrease  in  average  salary  of  elementary  teachers  during  the  same 
period.  The  coefficient  of  correlation  was  then  establisht  for  the  J^) 
cities  of  the  100  which  had  complete  data  for  both  items.  Spearman's 
formula  was  used  in  obtaining  this  coefficient,  and  the  result  r  =  .038, 
was  obtained.  This  coefficient  indicates  that  for  these  73  typical  cities 
in  the  United  States,  there  was  during  this  interval  of  6  years  no 
association  between  the  per  cent  of  increase  in  per  capita  wealth  and 
the  per  cent  of  increase  in  average  salary  paid  to  elementary  teachers. 
In  other  words,  it  was  purely  a  matter  of  chance  whether  the  city 


I 


132  NATIONAL  EDUCATION  ASSOCIATION 

which  increast  most  in  per  capita  wealth  paid  its  elementary  teachers 
an  increast  salary.  In  fact,  the  actual  figures  show  that  the  city  which 
decreast  most  in  per  capita  wealth  and  therefore,  rankt  first  or  lowest 
in  increase  in  per  capita  wealth  rankt  58th  in  the  percentage  of  increase 
in  salaries  to  elementary  teachers,  while  the  city  which  rankt  46th  in 
the  increase  in  per  capita  wealth,  rankt  first  or  lowest  in  the  amount 
of  increase  given  to  elementary  teachers.  The  above  study  would  con- 
clusively indicate  that  this  question  of  increases  to  teachers'  salaries  is 
largely  a  matter  of  local  progress,  and  depends  more  upon  the  develop- 
ment of  a  favorable  community  attitude  or  upon  the  aggressive  work 
of  a  superintendent  or  teachers'  organization,  than  upon  any  economic 
development  of  the  community.  Such  a  study  is  evidence  of  the  oft- 
quoted  statement  that  a  community  will  find  the  means  of  supporting 
schools  when  convinst  that  it  is  a  desirable  thing  to  do. 

The  second  consideration  under  the  relation  of  community  wealth 
to  teachers'  salaries  is  the  question  of  relative  financial  burden  carried. 
This  is  more  prominent  in  some  sections  of  the  country,  particularly  in 
the  southern  section,  where  many  districts  have  a  very  low  per  capita 
wealth.  In  these  districts  the  tax  burden  of  supporting  schools  upon 
the  same  level  as  the  more  favored  communities  becomes  so  high  as  to 
be  prohibitive.  At  least  two  determining  conditions  enter  this  situa- 
tion. First,  the  lack  of  natural  resources  for  certain  sections  of  the 
States,  and  second  the  principle  of  placing  such  a  low  valuation  upon 
the  property  that  the  tax  rate  seems  entirely  out  of  proportion  to  the 
property  value.  Readjustment  of  salary  schedule  within  these  com- 
munities will  necessitate  a  change  in  the  tax  system  and  assistance  from 
a  larger  taxation  unit.  In  some  instances,  aid  can  be  obtained  from 
the  State  as  a  unit  of  taxation,  but  there  would  remain  whole  States 
where  the  burdens  would  be  entirely  out  of  proportion  to  those  born  in 
other  sections  of  the  country.  The  only  permanent  solution  of  the 
economic  side  of  the  salary  problem  for  these  sections  is  in  some  form 
of  federal  subsidy. 

2.    Relation  of   Salary   Schedules  to   Expenditures   for  Other 

Purposes 

The  question  of  determining  schedules  for  teachers'  salaries  is  one 
of  the  important  financial  problems  of  any  city.  In  Table  LXIII,  the 
percentage  of  the  total  operating  expenses  expended  for  teachers' 
salaries  in  all  of  the  cities  of  the  United  States,  having  a  population  of 
25,000  or  over,  is  given  for  the  years  1909-10,  1910-11,  191 1 -12, 
1912-13,  1913-14  and  1914-15.  One  thing  that  is  obvious  from  a 
glance  at  the  table,  is  the  very  great  range  in  per  cent  of  total  expenses 


TEACHERS'  SALARIES  AXD  SALARY  SCHEDULES 


133 


TABLE  LXIII 

PERCENTAGE  OF  TOTAL  OPER.A.TING  EXPENSES  EXPENDED  FOR  TEACHERS' 

SALARIES 
(Number  of  cities  devnting  each  percent  indicated  ) 


% 

1910-11    1 

1911-12 

1912-13 

1913-14 

1914-15 

1915-16 

A 

B 

T 

A 

B 

T 

A 

B 

T 

A 

B 

T 

A 

B 

T 

A 

B 

T 

27 

1 

1 

31 

1 

1 

32 

1 

1 

40 

1 

1 

41 

42 

2 

2 

1 

1 

43 

1 

1 

45 

1 

1 

46 

1 

1 

3 

3 

1 

1 

47 

1 

1 

48 

2 

2 

1 

1 

1 

1 

1 

1 

49 

2 

2 

3 

3 

1 

1 

1 

1 

50 

3 

3 

4 

4 

2 

2 

2 

2 

1 

1 

51 

1 

6 

7 

5 

5 

2 

2 

2 

2 

1 

1 

3 

3 

52 

3 

3 

2 

2 

4 

4 

1 

1 

4 

4 

2 

2 

S3 

2 

2 

5 

5 

7 

7 

5 

5 

2 

2 

54 

1 

6 

7 

7 

7 

2 

5 

7 

1 

3 

4 

4 

4 

1 

1 

55 

1 

1 

7 

7 

8 

8 

3 

3 

1 

3 

4 

10 

10 

56 

9 

9 

5 

5 

4 

4 

1 

4 

5 

1 

8 

9 

8 

8 

57 

5 

5 

6 

,, 

1 

4 

5 

3 

8 

11 

7 

7 

2 

3 

U 

58 

1 

9 

1  0 

2 

11 

13 

1 

8 

9 

7 

7 

1 

14 

15 

11 

11 

59 

8 

8 

1 

15 

16 

1 

11 

12 

2 

9 

11 

3 

6 

9 

1 

10 

11 

60 

1 

10 

11 

■> 

10 

12 

2 

7 

9 

1 

4 

5 

5 

9 

14 

10 

10 

61 

1 

5 

6 

1 

6 

7 

1 

13 

14 

3 

11 

14 

1 

7 

8 

3 

3 

62 

1 

6 

7 

7 

8 

15 

1 

7 

8 

2 

15 

17 

2 

11 

13 

4 

13 

17 

63 

4 

8 

12 

4 

5 

9 

4 

14 

18 

1 

8 

9 

2 

7 

9 

5 

9 

14 

64 

3 

6 

9 

3 

7 

10 

4 

15 

19 

2 

11 

13 

1 

IS 

16 

4 

11 

15 

65 

3 

2 

5 

2 

8 

10 

5 

8 

13 

5 

9 

14 

8 

10 

18 

4 

12 

16 

66 

3 

6 

9 

3 

5 

8 

3 

7 

10 

4 

11 

15 

4 

10 

14 

2 

8 

10 

67 

1 

4 

5 

6 

5 

11 

8 

4 

12 

5 

8 

13 

4 

6 

10 

4 

5 

9 

68 

2 

5 

7 

1 

9 

10 

4 

4 

5 

5 

10 

3 

5 

8 

2 

4 

6 

69 

4 

3 

7 

3 

2 

5 

1 

3 

4 

3 

3 

6 

4 

3 

7 

3 

8 

11 

70 

1 

2 

3 

6 

2 

8 

2 

5 

7 

2 

4 

6 

6 

1 

7 

8 

2 

10 

71 

1 

3 

4 

2 

3 

5 

3 

1 

4 

2 

5 

7 

2 

3 

S 

72 

1 

2 

2 

3 

2 

5 

1 

3 

4 

1 

1 

3 

1 

4 

73 

1 

2 

3 

1 

1 

2 

2 

2 

3 

5 

1 

1 

1 

2 

3 

74 

1 

1 

1 

3 

3 

3 

3 

75 

1 

1 

2 

1 

3 

1 

1 

76 

1 

1 

2 

3 

1 

1 

2 

77 

1 

1 

1 

1 

1 

1 

1 

1 

2 

78 

1 

1 

1 

79 

1 

1 

1 

2 

2 

80 

1 

1 

82 

83 

1 

1 

1 

1 

1 

1 

1 

1 

84 

1 

1 

85 

86 

1 

1 

87 

1 

1 

88 

62 

66 

Medi- 

65 

60 

60 

62 

66 

62 

63 

67 

63 

64 

65 

61 

62 

67 

62 

63 

ans 

A— Cities  over  100.000.     B— Cities  25,000-100,000.     T— Both  together. 


expended  for  teachers'  salaries.  During  1910  this  ranged  from  one 
city  which  spent  only  27  per  cent  on  teachers'  salaries  to  another  which 
Spent  86  per  cent.  The  medians  for  the  two  groups  of  cities  into  which 
the  table  is  divided,  show  a  surprising  consistency  thruout  the  period 
of  6  years.  In  Table  LXIV  which  gives  the  changes  in  per  cent  of 
total  operating  expenses  devoted  to  teachers'  salaries  in  these  cities,  we 
find  a  correspondingly  large  range  with  the  heaviest  part  of  the  dis- 
tributions centering  around  the  "0"  change.  The  medians  in  all  cases, 
except  where  the  change  was  computed  between  1910-11  and  1915-16, 
is  either  "o"  or  +1%  or  — 1%'.     Even  in  the  last  column,  where  the 


134 


XATIOXJL  EDUCATION  ASSOCIATION 


TABLE  LXIV 

CHANGES  IN  PER  CENT  OF  TOTAL  OPER.ATING  EXPENSES  DEVOTED  TO 
TEACHERS'  SALARIES.* 

All  cities  over  25,000—1910-11  to  1915-16. 


1910-11  to 

1911-12  to 

1912-13  to 

1913-14  to 

1914-15  to 

1910-11  to 

1911-12 

1912-13 

1913-14 

1914-15 

1915-16 

1915-16 

+31 

1 

+25 

1 

+20 

1 

+  19 

1 

1 

+  18 

1 

1 

+  17 

3 

+  16 

1 

1> 

+  15 

1 

2 

+  14 

2 

2» 

+  13 

1 

1 

1 

1 

1 

+  12 

3 

2» 

+  11 

1 

2 

1 

1 

1 

4» 

+  10 

2 

2 

2 

1 

2 

2 

+  9 

5 

1 

1 

1 

3 

+  8 

3 

3 

2 

52 

+  7 

1 

1 

5 

1 

3 

+  6 

3 

7 

7 

3 

8 

15» 

+  5 

9 

6 

9 

10 

9« 

+  4 

9 

11 

7 

8 

6 

14< 

+  3 

8 

8 

12 

6 

10 

142 

+  2 

9 

20 

19 

13 

26 

14' 

+   1 

10 

22 

24 

21 

18 

105 

0 

is: 

19 

20 

29 

23 

15' 

—   1 

9 

16 

16 

16 

26 

12' 

—  2 

14 

14 

14 

18 

15 

8« 

—  3 

15 

10 

5 

10 

14 

6' 

—  4 

8 

1 

7 

9 

4 

46 

-  5 

5 

6 

3 

5 

3 

72 

-  6 

3 

2 

8 

5 

3 

6 

-  7 

4 

1 

8 

1 

5 

-  8 

5 

I 

3 

7 

3 

4 

-  9 

1 

1 

4 

t 

4 

-10 

2 

1 

1 

4 

.^s 

-n 

2 

2 

1 

2 

-12 

2 

1 

1 

3 

-13 

1 

3 

1 

-14 

1 

1 

-15 

1 

—  16 

1 

1 

1 

-17 

-18 

1 

—  19 

1 

—20 

1 

Medians 

0 

Plus  1 

Plus  i; 

Minus  1 

0 

Plus  2 

■From  1911-12  to  1915-16.     1913-11  figures  not  available. 

'One  of  the  cases  as  above. 

'Six  cases  as  above. 

*Four  cases  as  above. 

•Two  cases  as  above. 

•Three  cases  as  above. 

change  in  per  cent  is  figured  over  a  period  of  5  years,  the  median 
change  was  located  at  +2%.  These  tables  show  the  very  great 
variation  in  the  percentage  of  total  operating  expenses  spent  for 
teachers'  salaries,  and  also  in  the  change  of  that  per  cent  which  would 
further  substantiate  the  statement  that  salary  adjustments  are,  at  the 
present  time,  matters  of  local  initiative.  Further  evidence  to  prove 
the  above  point  is  given  by  Tables  LXV,  which  gives  the  distribution 
of  the  annual  amount  spent  for  elementary  teachers'  salaries  for  each 


•  Compiled  by   L.    M.   Wilson. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


135 


TABLE  LXV 
DISTRIBUTION  OF  ANNUAL  AMOUNT  SPENT  FOR  ELEMENTARY  TEACHERS  SALARIES 
FOR  EACH  PUPIL  IN  AVERAGE  DAILY  ATTENDANCE  BY  CITIES  OF  OVER 
25,000  INHABITANTS  FOR  THE  YEARS  1910-1916. 


1910-11 

1911-12 

1912-13 

1913-14 

1914-15 

1915-16 

$  9.00-  9.99 

1 

10.00-10.99 

1 

11.00-11.99 

1 

5 

2 

2 

1 

12.00-12.99 

2 

2 

1 

2 

3 

13.00-13.99 

2 

2 

1 

1 

4 

4 

14.00-14.99 

3 

4 

1 

4 

4 

3 

1.5.00-15.99 

3 

4 

5 

4 

5 

2 

16.00-16.99 

2 

6 

4 

3 

9 

4 

17.00-17.99 

3 

2 

6 

5 

7 

10 

18.00-18.99 

2 

5 

12 

7 

8 

4 

19.00-19.99 

4 

9 

9 

9 

11 

11 

20.00-20.99 

4 

7 

10 

7 

14 

10 

21.00-21.99 

3 

8 

4 

8 

6 

10 

22.00-22.99 

2 

5 

11 

11 

12 

7 

23.00-23.99 

3 

3 

10 

8 

7 

13 

24.00-24.99 

4 

2 

4 

12 

9 

12 

25.00-25.99 

1 

6 

4 

7 

9 

6 

26.00-26.99 

2 

2 

6 

5 

10 

11 

27.00-27.99 

1 

3 

5 

6 

4 

9 

28.00-28.99 

1 

2 

3 

4 

4 

8 

29.00-29.99 

1 

2 

5 

4 

3 

30.00-30.99 

3 

3 

1 

4 

3 

31.00-31.99 

2 

2 

1 

1 

32.00-32.99 

1 

1 

1 

2 

1 

33.00-33.99 

3 

34.00-34.99 

1 

1 

1 

2 

35.00-35.99 

1 

36.00-36.99 

1 

3 

3 

37.00-37.99 

1 

1 

38.00-38.99 

1 

2 

39.00-39.99 

1 

40.00-40.99 

1 

41.00-41.99 

42.00-42.99 

43.00-43.99 

1 

44.00-44.99 

1 

1 

45.00-45.99 

1 

46.00-46.99 

1 

47.00-47.99 

48.00-48.99 

1 

44 

78 

114 

120 

144 

148 

Median 

20.25 

20.56 

21.75 

22.77 

23.08 

23.31 

25% 

16.50 

17.06 

18.46 

19.22 

18.50 

19.40 

75% 

23.99 

24.04 

25.64 

25.99 

25.99 

26.88 

pupil  in  average  daily  attendance  by  cities  of  25,000  inhabitants  or 
over,  for  the  years  1910-11  to  191 5-16.  The  distributions  show  the 
same  tendency  to  scatter  over  a  wide  range  with  a  heavy  grouping  of 
the  cases  around  a  median  of  $20.  The  medians  for  the  6  years  show 
a  slight  increase  for  each  consecutive  year,  which  indicates  this  same 
slight  tendency  to  increase  salaries  of  elementary  teachers  for  con- 
secutive years.  Particular  cases  can  be  found  among  cities  where  the 
percentage  spent  for  teachers'  salaries  is  materially  influenst  by  the 
presence  or  lack  of  other  city  projects.  A  new  water  supply  or  a 
city  municipal  building  very  frequently  brings  about  a  curtailment 
of  the  educational  budget.  There  seems  no  reason  why  the  amount 
spent  for  schools,  a  large  per  cent  of  which  would  go  to  teachers' 
salaries,  should  not  be  a   fairly  definite  percentage  of  the  total  city 


136  NATIONAL  EDUCATION  ASSOCIATION 

expenditures.  The  medians  shown  in  Tables  LXIII  would  indicate 
that  current  practice  would  put  this  percentage  at  about  65.  Assum- 
ing that  there  has  been  certain  financial  exploitation  of  the  teachers 
during  the  years  for  which  these  figures  are  computed,  it  would  be  safe 
to  say  that  this  percentage  should  be  higher  than  65  per  cent. 

3.    Relation  of  Salary  Schedules  to  the  Cost  of  Living 

As  before  stated,  very  few  schedules,  except  as  they  have  been 
revised  within  the  last  decade,  have  been  made  with  any  serious  con- 
sideration of  the  cost  of  living  for  teachers.  Where  living  conditions 
are  at  all  unusual,  either  in  regard  to  the  price  of  standard  commodities 
or  in  regard  to  exorbitant  rents  due  to  rapidly  growing  population, 
an  adjustment  should  be  made  for  that  city  in  the  teachers'  salary 
schedule.  One  difficulty  in  such  an  adjustment  is  the  principle  which 
has  become  more  or  less  commonly  accepted — that  a  teachers'  salary, 
when  once  raised,  should  not  be  decreast.  This  is  not  really  a  difficulty 
and  should  not  be  seriously  considered,  since  it  is  very  improbable  that 
any  such  adjustment  would  relatively  overpay  the  teachers.  The  same 
reluctance  to  having  wages  reduced  exists  in  all  other  occupations  as 
well. 

4.    Relation  of  Salary  Schedules  to  Legislative   Restrictions 

In  many  cities  and  a  number  of  states,  cautious  law  makers  have 
guarded  against  extravagance  in  the  expenditure  of  funds  by  making 
laws  of  various  descriptions  limiting  the  amount  to  be  spent  for  this 
or  that  purpose,  or  placing  a  limit  upon  the  increase  which  can  be 
spent  for  any  item  in  one  year  over  the  preceeding  year.  While  these 
laws  seem  financially  safe  when  past,  they  inevitably  impose  a  serious 
obstacle  to  progress  when  it  becomes  necessary  to  undertake  some  very 
needed  improvements  and  undertake  them  at  short  notice.  An  instance 
of  this  was  found  inthe  situation  at  Louisville,  Ky.,  when  the  city  was 
confronted  by  a  serious  shortage  of  teachers,  and  the  salary  schedule 
was  obviously  too  low.  With  a  legal  limit  placed  upon  the  amount  of 
money  which  could  be  expended  for  school  purposes,  the  board  of 
education  voted,  as  a  means  of  increasing  teachers'  salaries  and  in- 
suring enough  teachers  to  open  schools,  to  pay  teachers  their  10  months' 
salary  on  the  basis  of  8]/^  months,  and  trusted  that  a  special  election 
at  the  end  of  the  fiscal  year  would  provide  the  needed  funds  to  con- 
tinue payments  at  the  increast  rates.  The  schools  are  so  close  to  the 
general  public  and  the  interests  of  the  tax  payers  are  so  vitally  con- 
cerned with  the  work  of  the  schools,  that  it  would  seem  safe  to  allow 
the  schools  to  progress  as  rapidly  as  the  communities  are  willing  to 
appropriate  funds  for  them,  and  not  have  them  hampered  by  legisla- 
tive restrictions. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  137 

B.    EDUCATIONAL  ELEMENTS 

1.    Salary  Schedules  as  a  Guarantee  to  a  Career 

One  of  the  elements  which  has  interfered  with  teaching  as  much 
as  perhaps  any  other,  has  been  the  fact  that  teachers  are  so  transient 
in  their  work.  The  average  professional  life  of  a  teacher  has  been 
variously  computed  at  from  5  years  up.  The  findings  of  the  present 
study  would  indicate  that  at  least  in  the  cities  this  figure  is  too  low, 
and  that  the  median  amount  of  experience  is  between  7  and  10.  At 
any  rate,  it  is  a  well  known  fact  that  a  great  many  people  use  teaching 
as  a  convenient  stepping-stone  to  some  other  line  of  work  which  prom- 
ises a  more  rapid  and  more  permanent  income.  When  salary  schedules 
are  so  arranged  that  a  teacher  can  begin  with  enough  money  to  induce 
the  better  prepared  and  most  ambitious  men  and  women  to  choose 
teaching  as  a  life  work,  and  seriously  prepare  for  it,  there  will  be  a 
possibility  of  making  teaching  a  genuine  profession,  as  well  as  a  pos- 
sibility for  carrying  on  consecutive  work  thruout  the  different  systems. 
Teaching  suft'ers  more  than  any  other  occupation  from  its  inability  to 
make  capital  from  the  experience  of  the  workers  in  it,  since  so  many 
of  them  leave  the  work  at  a  time  when  experience  is  becoming  richest. 
Salary  schedules  should,  therefore,  start  at  a  high  enough  figure,  and 
reach  a  high  enough  maximum  to  induce  the  type  of  men  and  women 
who  should  be  teachers  to  seriously  prepare  for  it,  knowing  that  in 
the  work  of  teaching  itself,  a  career  is  oft'ered. 

2.    Salary  Schedules  as  an  Incentive  to  Adequate  Preparation 

In  connection  with  the  above  point,  salary  schedules  must  insure 
adequate  preparation.  It  seems  unwise  to  try  to  secure  better  prepara- 
tion without  giving  a  just  compensation  for  that  preparation  when 
secured.  Lack  of  such  a  policy  prevents  capable  prospective  teachers 
from  going  to  the  expense  of  thoro  professional  training  when  they 
know  that  after  graduation  from  some  teacher  training  institution, 
they  cannot  secure  a  minimal  wage  comparable  with  the  other  fields  of 
work  open  to  students  with  the  same  amount  of  preparation.  An  ade- 
quate minimal  salary  alone  is  not  enough  to  secure  this  prepara- 
tion. As  advocated  in  the  above  point,  increases  given  and  the 
maximal  salary  attainable  are  also  elements  in  determining  the  amount 
of  preparation  a  prospective  teacher  is  willing  to  invest  in.  If  the 
promist  rewards  are  so  small  that  they  represent  no  returns  on  the  in- 
vestment of  time  and  money  in  securing  preparation,  only  teachers 
with  no  business  sense,  or  those  inspired  purely  by  a  missionary  desire 
to  serve,  would  enter  teaching.  There  has  been,  within  recent  years  a 
decided  improvement  in  salary  schedules  in  this  respect.    In  the  United 


138 


A'.^  77  OX  A  L  ED  UCA  TION  A  SSOCIA  TI  ON 


TABLE    LXVI 

MEDIANS  FOR  MINIMAL  AND  MAXIMAL  SALARIES  AS  GIVEN   IN 
SCHEDULES  FOR  CERTAIN  CITIES  LISTED  IN  U.  S.  BULLETIN  No. 

THE  SALARY 
16—19141 

I 

II 

III 

IV 

V 

Total 

Elementary 

26 

1125 

28 

617 

13 

1013 

16 

475 

15 

863 

25 

487 

20 
813 

30 
550 

14 
810 

27 

575 

88 

913 

126 

Teachers    

538 

Maximum:        No. of  cities 

22 
2400 

26 
1038 

6 

2350 

15 

845 

12 

1425 

23 

788 

14 

1567 

30 

800 

14 

925 

27 

713 

68 

1650 

121 

Teachers 

834 

High    School 
Minimum:       No.  of  cities 

10 

over  3000 

26 

977 

8 

2500 

16 

950 

■     8 

2350 

22 

833 

13 

1750 

23 

875 

12 

1325 

24 

750 

60 

Principals 

2400 
111 

Teachers    

846 

Maximum:       No.  of  cities 

25 
1838 

16 
1550 

20 
1325 

22 
1275 

28 
942 

105 

Teachers    

1425 

>  "The  Tangible  Rewards  of  Teaching." 

States  Bureau  of  Education  Bulletin,  "The  Tangible  Rewards  of 
Teaching,"  No.  i6,  1914,^  salary  schedules  for  certain  city  school  sys- 
tems are  given.  The  minimal  salary,  the  amount  of  annual  increase, 
the  number  of  years  for  which  increases  are  given  and  the  maximal 
salary  are  recorded.  A  tabulation  of  these  data.  Table  LXVI  shows 
the  following  median  results  for  the  cities  in  the  first  five  size  groups. 
It  will  be  obvious  from  these  figures  that  in  1912-13,  the  year  for 
which  these  data  were  collected,  that  the  findings  in  Chapters  I  and  II 
are  substantially  corroborated,  since  the  minimal  and  maximal  salaries 
vary  directly  as  the  size  of  the  cities  varies.  In  this  connection,  the 
median  number  of  years  of  increase,  both  in  the  high  school  and  in 
the  elementary  grades  varies  between  6  and  10.  with  a  rather  consis- 
tent median  for  the  groups  in  the  neighborhood  of  8  yearly  increases. 
A  slight  tendency  is  shown  for  the  larger  cities  to  grant  a  greater 
number  of  increases.  The  tabulation  of  the  median  increases  for  ele- 
mentary teachers  given  in  these  difi^erent  cities,  varies  from  $35  to 
$60  as  the  cities  increase  from  Size  5  to  Size  i.  The  median  increase 
runs  from  $55  to  $85  for  high  school  teachers  as  the  size  of  the  city 
increases.  In  connection  with  the  value  of  salary  schedules  as  a 
promise  of  a  career  and  as  an  incentive  to  adequate  preparation,  the 
advance  made  within  the  last  few  years  will  be  of  interest.  In  the 
National  Education  Association  study  on  "Teachers'  Salaries  and  Cost 
of  Living"  for  July,  1918,  Appendix  7  gives  the  minimal  and  maximal 
teachers'  salaries  in  108  cities  collected  by  the  Commissioner  of  Edu- 
cation, May,  1 91 8.     As  an  indication  of  progress  during  the  5  years 


'  Size  groups  are  similar  to  those  defined  on  page  9. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  139 

between  the  collection  of  these  data  and  those  recorded  in  Table  LVI 
the  median  maximal  salaries  for  cities  in  Size  Groups  I,  II  and  III 
are  computed  to  be  as  follows : 

Median  Maximal  Salaries  for  Elementary  Teachers 

Size  Group  I $1,250 

Size  Group  II 950 

Size  Group  III 829 

Median  Maximal  Salaries  for  High  School  Teachers 

Size  Group  I $2,240 

Size  Group  II 1,988 

Size  Group  III  i,54o 

A  comparison  of  these  with  the  median  maximal  salaries  for 
1912-13  given  above,  will  show  that  within  the  5  years  a  decided  in- 
crease in  maximal  salary  offered,  occurred  in  all  of  these  groups,  which 
indicates  a  recognition  on  the  part  of  school  boards,  especially  in  the 
larger  cities  of  the  necessity  of  a  liberal  maximal  salary  in  order  to 
secure  the  desired  number  of  the  right  kind  of  teachers. 

In  order  to  show  that  the  preparation  of  teachers  can  be  controlled 
thru  the  salaries  offered,  10  cities  were  selected  from  the  cities  included 
in  the  study  in  Chapter  I  which  paid  relatively  low  salaries,  and  the 
amount  of  preparation  of  the  teachers  was  compared  with  the  prepara- 
tion of  the  teachers  in  10  selected  cities  from  the  same  list  paying 
relatively  high  salaries.^  The  10  cities  paying  relatively  low  salaries 
had  median  salaries  for  the  457  teachers  who  returned  the  questionnaire 
of  $652,  with  a  median  amount  of  preparation  above  the  8th  grade 
of  5.76  years.  The  10  cities  paying  relatively  high  salaries  had  a 
median  salary  of  $1,049  ^or  the  548  teachers  answering  from  those 
cities,  with  a  median  amount  of  preparation  beyond  the  8th  grade  of 
6.44  years.  This  shows  that  even  under  present  conditions  the  cities 
paying  the  better  salaries  are  securing  teachers  with  more  adequate 
preparation.  Table  LVII  and  LVIII  give  these  distributions,  which 
by  inspection  reveal  the  situation. 

In  addition  to  the  above  mentioned  necessity  for  having  the  mini- 
mum and  maximum  high  enough  to  warrant  preparation,  another  very 
important  item  is  the  amount  of  the  annual  increase  and  the  number 
of  years  necessary  to  attain  the  maximum.     A  maximum  of  $1,800 

*  The  10  cities  represented  in  the  group  paying  the  lower  salaries  are:  Augusta,  Ga., 
East  St.  Louis,  111.,  Paducah,  Ky.,  Millville.  N.  J.,  Indiana,  Pa.,  Herrin,  111.,  Carthage, 
Mo.,  Sandford,  Fla.,  Horton,   Kans. 

The  10  cities  represented  in  the  ^roup  paying  the  higher  salaries  are:  Columbu*. 
Ohio,  Des  Moines,  Iowa,  Oakland,  Calif.,  East  Chicago,  Ind.,  Pasadena,  Calif.,  Cleveland 
Reights.    Ohio     Great   Falls.    Nev.,    Prescbtt,   Ariz.,    Lake    Forest,   111.,   Topanah,    Nev. 


140 


NATIONAL  EDUCATION  ASSOCIATION 


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TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


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142  NATIONAL  EDUCATION  ASSOCIATION 

offers  practically  no  incentive  if  it  takes  i6  years  to  reach  it  from  the 
$i,ooo  minimum.  Salary  increases  should  be  large  enough  to  make 
an  immediate  appeal  to  ambition  and  thus  promise  a  fairly  adequate 
salary  after  4  or  5  years.  This  is  the  period  when  the  average  indi- 
vidual desires  to  increase  his  responsibilities,  purchase  a  permanent 
home,  or  make  other  investments  of  more  than  temporary  nature.  The 
gratification  of  these  desires  should  be  made  possible.  But  a  salary 
schedule  should  not  carry  teachers  up  to  this  point,  and  then  not 
offer  incentive  enough  to  hold  them.  This  is  the  objection  to  some  of 
the  salary  schedules  proposed  by  the  English  Committee^  who  recom- 
mend a  granting  of  larger  increases  for  a  period,  then  of  smaller  in- 
creases and  then,  of  larger  increases  again.  Such  plans  as  this  have 
no  justification,  except  that  they  save  to  the  taxpayers  the  small  dif- 
ference in  the  increase  during  the  years  when  the  increase  is  reduced. 
It  is  just  such  evidence  of  pettiness  in  the  financial  control  of  the 
schools  which  disgust  capable  men  and  women  to  the  point  of  leaving 
teaching.  The  most  acceptable  plan  for  granting  increases  seems 
to  be  to  grant  the  same  increase  for  each  year  of  successful  experience 
until  the  maximum  is  attained  for  that  particular  kind  of  work.  It 
would  seem  that  for  an  adequately  prepared  teacher,  that  is,  one  who 
has  had  six  or  more  years  preparation  above  the  elementary  school, 
no  annual  increase  should  be  less  than  $100  or  given  for  less  than 
six  or  eight  years. 

3.    Salary  Schedules  as  Incentive  to  Progress  While  Teaching 

The  objection  most  frequently  made  to  the  introduction  of  salary 
schedules  is  that  they  so  often  and  so  quickly  become  automatic  and 
taken  for  granted  that  they  produce  mental  lethargy  and  destroy  the 
incentive  to  self-improvement.  Of  course,  this  is  not  an  objection  to 
the  schedules  nor  the  principles  involved,  but  rather  a  criticism  of 
the  way  in  which  so  many  salary  schedules  have  been  administered. 
It  is  unfortunately  true  that  many  individuals,  some  of  whom  are 
teachers,  will  not  do  any  more  work  than  they  think  is  absolutely 
necessary  in  order  to  secure  their  pay.  For  such,  an  automatic  increase 
is  not  a  reward  of  meritorious  service  nor  a  spur  to  make  each  year's 
work  better  than  the  preceding  one.  While  it  seems  obvious  that  in- 
creases should  not  be  received  as  a  matter  of  course  and  regardless 
of.  the  effort  of  the  teachers,  guarding  against  such  a  situation  is  one 
of  the  difficult  elements  in  administering  a  salary  schedule.  In  every 
other  field  of  endeavor  the  reward  is  more  nearly  determined  by  the 
effort  put  forth.     The  principle  reason  why  it  is  so  difficult  to  apply 


1  Summary  of  the  report  by  Dr.  I.  L.   Kandel  in  Appendix  XIII  ol  "Teachers'  Salaries 
and  Cost  of  Living" — N.  E.  A.,  1918. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  143 

this  rule  to  teachers  is  the  intangible  nature  of  much  of  a  teacher's 
work  and  the  inabihty  by  present  measures  to  determine  the  results 
obtained.  In  the  face  of  these  difficulties  only  a  few  cities  have  so 
far  tried  to  put  the  granting  of  increases  upon  a  basis  of  measurable 
or  "rated"  merit.  In  many  cities  where  the  superintendent  reported 
that  the  granting  of  an  increase  depended  upon  successful  work, 
it  meant  that  the  superintendent  had  to  act  as  the  judge  of  whether 
the  work  was  successful  or  not,  and  this  in  most  cases,  meant  that 
the  increase  was  granted  if  the  work  was  not  of  a  nature  to  secure 
the  dismissal  of  the  teacher. 

When  better  and  more  accurate  supervisor's  tests  are  developt  so 
that  is  will  be  possible  to  rate  a  teacher  justly  into  one  of  three  or 
four  classes,  not  alone  in  relation  to  other  teachers,  but  more  partic- 
ularly in  regard  to  her  own  previous  work,  the  administration  of  in- 
creases to  insure  and  reward  progress  will  be  relatively  simple.  A 
suggestive  classification  which  is  being  used  in  several  places  is : 
Class  I — Teachers  whose  work  is  entirely  satisfactory,  who  have 
gained  in  ability  to  teach  and  in  their  mastery  of  the  subject  matter 
taught;  Class  II — Teachers  whose  work  has  been  satisfactory  but  who 
have  made  no  effort  to  improve  during  the  year ;  Class  III — Teachers 
wiiose  work  is  not  entirely  satisfactory  but  have  made  a  conscious 
effort  to  profit  by  experience  and  supervisory  help,  and  who  give 
promise  of  enough  growth  to  warrant  retention;  Class  IV — Teachers 
whose  work  and  attitude  have  not  been  satisfactory  enough  to  retain 
them  in  the  system.  With  teachers  classified  into  one  or  another  of  the 
above  groups  by  a  method  which  would  be  considered  just  by  all  con- 
cerned, it  would  be  possible  to  say,  for  instance,  that  teachers  in  Class 
I  shall  receive  the  full  regular  increase,  teachers  in  Class  II  half  of 
the  regular  increase  and  teachers  in  Qass  III  be  retained  without  in- 
crease. -As  was  stated  above,  the  most  urgent  need,  before  the  in- 
creases given  under  any  schedule  may  produce  the  maximal  incentive 
to  progress,  is  the  development  of  quantitative  tests  of  teaching  effi- 
ciency which  can  be  fairly  used  by  supervisory  staffs,  or  by  committees 
of  teachers. 

Two  other  elements  should  enter  all  salary  schedules  in  order  to 
make  them  serve  as  mcentives  to  progress  while  teaching.  These  are 
( I )  provision  for  summer  study,  and  (2)  provision  for  leaves  of  absence 
for  study,  research  or  educative  travel.  In  providing  for  the  first  of 
these,  many  school  systems  follow  the  plan  of  making  a  flat  allowance 
of  $50  to  the  teacher  who  attends  an  acceptable  summer  school  for 
the  year  when  she  attends.  This  is  merely  helping  the  teacher,  to  the 
extent  of  the  amount  given,  to  pay  the  extra  expenses  caused  by 
attending  the  summer  school,  and  makes  no  allowance  for  the  fact 


144  NATIONAL  EDUCATION  ASSOCIATION 

that  the  teacher  is  a  stronger  teacher.  In  many  cities  the  number  of 
such  increases  are  limited  to  two.  Better  results  would  doubtless  be 
obtained  from  the  teachers  and  better  returns  on  the  investments 
for  the  district  if  this  sum,  for  example  $50,  not  only  should  be  given 
for  the  year  the  teacher  attends  the  summer  school,  but  should  be  a 
permanent  increase  to  the  salary  that  she  is  otherwise  entitled  to. 
Furthermore,  four  such  increases  seem  to  be  the  minimum  which 
should  be  fixt.  Four  is  selected  since  the  curricula  of  most  schools 
are  now  arranged  so  that  a  year's  work  may  be  done  in  four  summer 
sessions.  This  will  enable  teachers  to  advance  their  education  by  the 
unit  of  a  year,  and  those  holding  an  A.  B.  degree  or  its  equivalent,  to 
secure  the  master's  degree  in  four  summers. 

Providing  for  the  second  of  these  additional  elements,  namely, 
periodic  leaves  of  absence  for  study,  research,  travel,  etc.,  is  as  good 
an  investment  for  a  city  as  it  is  for  a  college  and  it  is  a  commonly 
accepted  practice  among  the  better  colleges.  Such  a  leave  on  at  least 
half  pay  should  be  granted  to  teachers  requesting  it,  not  oftener  than 
once  in  every  seven  years,  providing  the  time  is  to  be  spent  in  a  way 
that  will  result  in  professional  growth. 

4.  The  Element  of  Flexibility  in  Salary  Schedules 
In  order  more  surely  to  escape  the  deadening  effect  of  having  salary 
increases,  even  adequate  increases,  become  purely  perfunctory  and 
automatic,  every  salary  schedule  should  have  enough  flexibility  to 
adjust  the  wage  to  the  needs  in  individual  cases.  Practically  all  the 
adjustments  of  this  kind  will  be  for  teachers  of  special  merit  or  ability 
who  are  worth  more  to  the  system  than  some  others  doing  the  same 
class  of  work,  but  who  will  be  secured  by  other  places  at  an  advanst 
salary  unless  some  local  adjustment  is  made.  This  is  not  usually  a 
problem  unless  the  teacher  is  already  receiving  the  maximal  salary. 
Some  salary  schedules  have  attempted  to  meet  this  condition  by  pro- 
viding so-called  "super-maximal  salaries"  which  may  be  secured  by 
teachers  who  secure  an  advanst  degree  or  some  other  prescribed 
qualification.  This  condition  is  not  entirely  satisfactory,  since  it  can, 
in  a  way,  be  met  by  fulfilling  requirements.  Other  cities  have  tried 
to  solve  the  situation  by  establishing  no  maximal  salaries  and  making 
each  teacher  an  individual  case  as  she  progresses  in  tenure.  This 
plan  makes  salary  progress  depend  upon  the  vote  of  the  school  board 
and  is  subject  to  the  objections  which  have  given  rise  to  salary 
schedules  in  order  that  this  may  be  prevented.  It  would  be  almost 
impossible  to  administer  the  salary  schedules,  especially  in  larger  ciites, 
without  having  maximal  salaries  fixt.  No  single  device  will  produce 
the  needed  amount  of  flexibilitv.     Dififerent  methods  should  be  used 


THACHEKS'  SALARIES  AND  SALARY  SCHEDULES  145 

to  meet  situations  as  they  arise.  For  example,  where  it  is  desirable 
to  increase  a  teacher's  salary  over  what  the  regular  schedule  calls  for, 
she  may :  ( i )  be  changed  to  another  position  with  a  higher  schedule ; 
(2)  be  made  demonstration  teacher  for  her  subject  or  grade;  (3)  be 
placed  in  charge  of  a  special  experiment;  (4)  be  made  responsible  for 
some  assistant  supervision  with  younger  teachers;  (5)  be  made  assis- 
tant principal  of  the  building  in  which  she  works;  (6)  be  made 
responsible  for  a  certain  form  of  community  service;  or  (7)  be  put 
in  general  charge  of  some  extra  school  activity  of  the  children.  Many 
such  adjustments  may  be  made  and  in  most  cases,  they  will  mean 
merely  an  addition  to  the  teacher's  "title,"  since  if  she  is  the  kind  of 
teacher  who  deserves  the  extra  compensation,  she  will  undoubtedly 
be  doing  several  kinds  of  extra  work  for  which  she  might  be  singled 
out  and  rewarded.  The  use,  not  to  excess,  of  this  principle  of  flexi- 
bility enables  a  salary  schedule  to  remove  unnecessary  w^orry  from 
the  teachers,  and  yet  retain  promise  enough  of  reward  to  appeal  to 
the  most  ambitious.  Each  teacher  may  then  strive  to  acquire  special 
skill  in  her  work,  and  may  know  that  hard  conscientous  work  at  all 
times  will  undoubtedly  not  go  entirely  unrewarded. 

5.    Salary  Schedules  Should  Not  Make  a  Distinction  Between  the 
Different  School  Divisions. 

At  the  present  time,  all  salary  schedules  make  a  markt  distinction 
between  the  salaries  for  elementary,  intermediate  and  high  school 
teachers.  Tables  XXX-XXXV  in  Chapter  I  show  for  the  cities  re- 
porting minimal  and  maximal  salaries  the  decided  tendency  to  establish 
lower  minimal  and  maximal  salaries  for  elementary  teachers  than  for 
intermediate  teachers,  and  lower  for  the  intermediate  teachers  than 
for  high  school  teachers.  The  medians  for  the  minimal  salaries  are : 
elementary  $609,  intermediate  $718,  high  school  $837,  and  for  the 
•maximal  salaries,  elementary  $867,  intermediate  $933  and  high  school 
$1,358.  In  addition  to  the  lower  salaries  scheduled,  it  is  also  obvious 
from  these  tables  that  the  range  between  the  minimum  and  maximum 
is  much  smaller  for  the  elementary  teachers.  An  examination  of  the 
replies  from  the  superintendents  makes  this  more  pronounst  than  the 
medians  indicate.  Of  151  cities  below  10,000  inhabitants  which  gave 
both  the  minimum  and  maximum  for  elementary  teachers,  six  per 
cent  report  a  difference  between  the  minimal  and  maximal  salary  of 
$50  or  less,  24  per  cent  a  difference  of  $100  or  less,  64  per  cent  a  dif- 
ference of  $200  or  less  and  85  per  cent  a  difference  of  $300  or  less. 
This  means  that  in  more  than  three-fifths  of  the  cities  in  Size  Groups 
V  and  VI  the  elementary  teacher  cannot  look  forward  to  earning  more 
than  $200  per  year  more  than  when  she  begins.     This  is  certainly 


146  NATIONAL  EDUCATION  ASSOCIATION 

one  of  the  chief  reasons  why  teachers  stay  so  short  a  time  in  the 
smaller  places.  Many  teachers  would  assuredly  stay  in  the  village 
school  where  they  have  achieved  success  if  to  do  so  it  did  not  mean 
both  a  present  sacrifice  of  money  and  a  lack  of  future  prospects. 

The  reason  for  this  difference  is  the  lack  of  preparation  of  so  many 
of  the  elementary  teachers  in  comparison  with  the  high  school  teachers. 
This  was  particularly  true  twenty  or  twenty-five  years  ago,  but  the 
dift'erence  in  preparation  has  decreast  materially  during  the  past 
decade.  Where  the  standards  are  as  definitely  set  at  six  and  eight 
years  of  work  above  the  eighth  grade  for  the  elementary  and  the  high 
schools  (as  shown  by  Tables  XLVII,  XLVIII  and  XLIX),  it  does  not 
show  a  present  difference  which  would  warrant  the  amount  of  dis- 
tinction made  in  all  salary  schedules.  Table  XL,  which  showed  that 
a  number  of  superintendents  expect  elementary  teachers  to  pay  less 
for  "board  and  room"  than  high  school  teachers,  was  another  evidence 
of  the  difference  existing  between  these  school  divisions.  When  this 
distinction  is  made  in  salary  and  in  social  status,  there  is  no  doubt  that 
the  distinction  carries  over  to  the  educational  relations  as  well.  This 
is  an  unfortunate  situation,  and  one  which  would  be  removed  by 
putting  elementary,  intermediate  and  high  school  teachers  upon  the 
same  salary  schedule  as  soon  as  they  meet  the  same  standards  of 
preparation.  Who  can  say  that  any  one  of  these  divisions  is  more 
necessary  or  important  than  another,  and  consequently,  why  should  the 
distinction  be  made  either  in  amount  of  preparation  considered  neces- 
sary or  in  the  salary  paid  ?  There  is  a  strong  movement  in  the  country 
at  the  present  time  toward  this  standard.  Several  of  the  normal 
schools  have  become,  or  are  planning  to  become,  teacher-training  col- 
leges with  full  four  years  of  professional  work,  while  others  are  intro- 
ducing a  third  year's  work  as  a  step  toward  this  standard.  The  equal 
preparation  of  the  teachers  in  all  three  of  the  school  divisions  and  equal 
rewards  for  service,  equally  important  to  the  welfare  of  the  nation, 
is  a  condition  highly  to  be  desired. 

6.    Salary  Schedules  Should  Be  Standardized. 

The  need  for  this  is  especially  felt  in  regard  to  schedules  as  they 
are  influenst  by  such  elements  as  the  size  of  the  city,  the  location  of 
the  city,  the  preparation  of  the  teachers,  and  the  previous  experience 
of  the  teachers.  Under  existing  conditions  the  smaller  communities 
can  not  hope  to  compete  for  teachers  with  the  larger  cities.  The 
smaller  community  is  compelled  to  accept  the  inexperienst  or  the  less 
competent,  for  as  soon  as  the  necessary  experience  is  obtaind  or  as 
soon  as  a  teacher  demonstrates  markt  ability  she  is  drawn  to  a  larg«r 
place  by  the  larger  salaries  paid.     Exactly  the  same  situation  eidsts 


TEA CHEKS'  SALARIES  AND  SALARY  SCHEDULES  147 

among  different  sections  of  the  country,  where  the  dift'erences  in  the 
salaries  offered  are  as  great  as  the  differences  among  cities  of  different 
sizes.  Tables  I-VIII  in  Chapter  I  show  these  discrepancies.  The 
effect  of  location  is  not  as  markt  as  that  of  the  size  of  the  city,  how- 
ever, due  to  the  added  expense  of  travel,  yet  to  the  extent  that  it  does 
exert  an  influence  it  sends  the  better  teachers  to  the  sections  paying 
better  salaries. 

The  majority  of  salary  schedules  at  the  present  time  either  discount 
or  discredit  entirely  the  experience  a  teacher  has  gained  in  other  sys- 
tems, at  least  as  far  as  it  gives  her  an  advanst  place  on  the  salary 
schedule.  This  practice,  while  it  offers  no  inducement  for  remaining 
with  the  same  school  system,  at  least  puts  a  penalty  upon  moving.  As 
a  consequence  many  teachers  will  not  move  when  it  would  be  to  their 
advantage,  unless  the  difference  in  salary  offered  is  enough  to  make 
the  lower  ranking  due  to  discredited  experience.  With  the  standard- 
ization which  has  already  been  made  in  matters  of  preparation,  it 
school  officials  could  reach  some  agreement  on  this  matter  so  that 
teaching  experience  could  be  accepted  year  for  year  where  it  is  com- 
parable, it  would  do  much  to  unite  teachers  into  a  profession  and  also 
to  destroy  the  restricting  local  influences  which  so  predominate  in 
many  systems.  In  determining  what  experiences  are  comparable 
there  seems  to  be  no  reason  why,  when  preparation  or  training  are 
equivalent,  that  any  experience  in  public  schools  in  the  same  divisions 
(elementary,  intermediate,  or  high  school)  should  not  be  taken  at  full 
value.  If  a  teacher  is  good  enough  to  be  elected  to  the  teaching  corps 
of  a  given  city,  it  would  indicate  that  her  past  teaching  experience, 
even  if  in  a  rural  or  village  school,  was  probably  good  enough  to  be 
counted  in  placing  her  upon  the  salary  schedule. 

Suggested  Standards  for  Salary  Schedules 

In  the  light  of  the  above  described  elements  and  existing  con- 
ditions the  following  standards  are  suggested.  These  are  higher  than 
common  practice  but  are  not  higher  than  has  already  been  accom- 
pHsht  in  some  of  our  more  progressive  cities.  The  division  of  the 
cities  into  two  size  groups  is  justified  by  the  results  shown  in  Tables 
I-IV,  inclusive.  There  is  a  noticeable  break  in  salary  paid  between 
cities  in  size  III  and  in  size  IV,  while  if  the  average  of  the  medians 
for  cities  in  size  groups  I,  II  and  III  is  compared  with  the  average 
for  the  cities  in  size  groups  IV,  V  and  VI,  there  is  a  difference  of 
approxim.ately  the  $200  which  has  been  made  in  the  following  table. 
Of  course  there  can  not  be  a  clear  cut  line  drawn  between  a  city  say 
of  28,000  inhabitants  falling  in  size  group  III  and  one  of  23,000  in 
group  IV,  and  many  cities  in  the  lower  group  will  pay  salaries  as  high 


148 


NATIONAL  EDUCATION  ASSOCIATION 


as  those  in  the  upper  group  which  will  be  more  to  their  credit  than  to 
have  a  larger  city  remain  on  the  lower  level. 


SUGGESTED  STANDARDS  FOR  SALARY  SCHEDULES 


Amount  of 
Professional  Preparation 

For  City  Size3>  P,  II  &  III 

For  City  Sizes*  IV.  V  &  VI 

Minimal 
Salary 

Annual 
Increases 

Maximal 
Salary 

Minimal 
Salary 

Annual 
Increases 

Maximal 
Salary 

Teachers 

$1200 
1400 
1600 
2000 

6  xSlOO 
10  X  100 
10  X  100 
10  X  100 

$1800 
2400 
2600 
3000 

$1000 
1200 
1400 
1800 

6  x$100 
10  X  100 
10  X  100 
10  X  100 

$1600 

A.  B.  Degree 

2200 

2400 

Ph.  D.  Degree 

2800 

Heads  of  Departments*  in 
Intermediate  or   High 
School 

$1600 
1800 
2000 
2400 

8  X  100 
10  X  100 
10  X  100 
10  X  100 

$2400 
2800 
3000 
3400 

$1400 
1600 
1800 
2200 

8  x$100 
10  X  100 
10  X  100 
10  X  100 

$2200 

2600 

A.M. Degree 

2800 

Ph.D.  Degree 

3200 

Special  Supervisors 

S1300 
1500 
1700 
2100 

8  x$150 
10  X  150 
10  X  ISO 
10  X  150 

$2500 
3000 
3200 
3600 

$1100 
1300 
1500 
1900 

8  x$150 
10  X  150 
10  X  150 
10  X  150 

$2300 

A.B.  Degree 

2800 

A.M.  Degree 

3000 

Ph.D.  Degree 

3400 

Principals 

Elementary  (IS  rooms  or  less). 
Normal  Diploma 

$1800 
2000 
2200 
2600 

4  x$200 

5  X  200 

6  X  200 

7  X  200 

S2600 
3000 
3400 
4000 

$1600 
1800 
2000 
2400 

4  x$200 

5  X  200 

6  X  200 

7  X  200 

2400 

2800 

3200 

Ph.D.  Degree 

3800 

Elementary  (16  rooms  or  more). 
Intermediate  or  High  School 
(with  an  enrollment  of  less 
than  500.) 

Normal  Diploma 

S2200 
2600 
2800 
3200 

4  xS200 

5  X  200 

6  X  200 

7  X  200 

$3000 
3600 
4000 
4600 

$2000 
2400 
2600 
3000 

4  x$200 

5  x  200 

6  X  200 

7  X  200 

$2800 

A.B. Degree 

3400 

A.M.  Degree 

3800 

Ph.D.  Degree 

4400 

Intermediate  (.SOO  or  more). 
High  School  (Between  SOO 
and  1200) 

Normal  Diploma 

vS2800 
3200 
3400 
3800 

4  x$200 

5  x  200 

6  X  200 

7  X  200 

$3600 
4200 
4600 
5200 

$2600 
3000 
3200 
3600 

4  x$200 

5  X  200 

6  X  200 

7  X  200 

$3200 

A.B.  Degree 

4000 

A.M.  Degree 

4400 

Ph.D.  Degree 

5000 

High  School  (Between  1200 

and  2S00) 
A.B.  Degree 

S3600 
3800 
4200 

5  x$200 

6  X  200 

7  X  200 

$4600 
5000 
5600 

S3400 
3600 
4000 

5  x$200 

6  X  200 

7  x  200 

$4400 

4800 

Ph.D.  Degree 

5400 

High  School  (2500  or  more) 
A.B.  Degree 

S4000 
4200 
4600 

5  xS200 

6  X  200 

7  X  200 

$5000 
5400 
6000 

$3800 
4000 
4400 

5  x$200 

6  X  200 

7  X  200 

$4800 

5200 

Ph.D.  Degree 

5800 

'  For  explanation  of  the  size  groups  see  page  9 

'  Large  cities  e.  g.  over  1.000.000,  could  add  $100  or  more  to  the  above  schedules  to  cover  the  additional  cost  of  living 

'  Normal  diploma  as  used  here  is  meant  to  represent  graduation  from  a  standard  normal  school  with  two  years 
work  beyond  the  completion  of  four  years  high  school,  six  years  beyond  the  eight  grade. 

♦  Heads  of  departments  are  assumed  to  have  at  least  three  years  of  teaching  experience  before  receiving  the  mini- 
mum. 

Suggestions  for  Administering  the  Above  Schedule 

a.    A  teacher  when  elected  should  be  placed  on  the  salary  level  to 
which  her  training  and  experience  would  entitle  her. 

h.    When  a  teacher  changes  her  classification  by  being  promoted  in 


TEACHERS'  SAL.UilES  .IXJJ  SALAR)'  SCHEDULES  149 

responsibility  or  by  earning  an  advanst  degree  she  should  be  placed 
upon  the  new  schedule  at  the  place  where  her  present  salary  would 
place  her  and  be  entitled  to  as  many  more  increases  as  are  open  to  her 
between  that  point  and  the  new  maximum.  For  example,  in  a  size  II 
city  a  teacher  with  six  years'  training  receives  four  increases  and  then 
secures  an  A.  B.  degree.  Her  salary  on  the  first  schedule  would  be 
$i,6oo,  which  would  be  the  same  as  if  she  had  received  two  increases 
on  the  new  schedule  and  she  would  be  entitled  to  eight  more — a  total 
of  twelve  increases  in  all. 

c.  Where  it  is  desirable  to  pay  some  teachers  more  than  the 
schedule  would  call  for  or  more  than  the  maximum  provided,  some  of 
the  devices  previously  discust  under  "Elements  of  Flexibility  in 
Salary  Schedules"  should  be  used. 

d.  Provision  has  not  been  made  in  the  above  schedule  for  different 
salaries  for  men  and  women  because  of  the  growing  tendency  not  to 
make  such  distinctions.  Where,  however,  it  is  desired  to  make  such 
a  difference  the  salaries  for  men  should  be  set  in  excess  of  the  stan- 
dards above  mentioned  rather  than  to  make  them  the  standards  for 
men  and  lower  them  for  the  women  teachers.  The  above  salaries 
are  not  more  than  enough  to  provide  a  living  saving  wage  for  teachers 
and  at  the  same  time  induce  the  stronger  men  and  women  to  enter 
and  remain  in  the  profession. 

e.  The  introduction  of  the  above  schedule  should  not  be  allowed 
in  any  case  to  decrease  any  salaries,  but  if  a  teacher  is  receiving  a 
salary  in  excess  of  the  maximum  which  she  is  entitled  to  because  of 
her  preparation  she  should  not  receive  further  increases  without 
additional  preparation  or  special  work. 

/.  The  suggested  schedule  does  not  make  elaborate  distinctions 
between  different  kinds  of  work,  e.  g.,  ungraded  rooms,  tubercular, 
etc.  If  in  any  city  this  seems  advisable  it  will  be  possible  to  make 
a  schedule  between  any  of  the  above  standards.  This,  however,  only 
makes  more  "classes"  of  teachers  and  could  be  better  handled  by 
paying  an  extra  amount  for  different  kinds  of  work  requiring  extra 
preparation  or  which  is  in  any  way  more  difficult  to  perform. 

g.  Care  should  be  taken  to  safeguard  the  granting  of  increases  so 
that  they  will  not  become  automatic  with  increasing  tenure.  Any 
year  when  an  increase  is  not  earned  or  when  a  partial  increase  is 
earned  should  not  decrease  the  possible  maximum  attainable  by  that 
teacher. 

Teachers'  Salaries  and  Public  Interest 

Most  of  the  elements  which  keep  teaching  from  being  a  profession 
in   the   truest   sense   can   be    remedied   onlv   thru   better    salaries    for 


150  NATIONAL  EDUCATION  ASSOCIATION 

teaching.  Better  salaries  for  teachers  will  not  come  until  salary 
schedules  are  generally  used  and  based  upon  more  generally  accepted 
standards  than  at  the  present  time.  This  needed  reform  will  not  be 
accomplisht  until  teachers  become  intelligently  interested  and  active  in 
the  Blatter.  Among  a  great  many  people  the  handed-down  feeling  that 
teaching  as  a  means  of  earning  a  living  is  more  respectable,  e.  g.,  than 
the  more  remunerative  work  in  some  factory,  has  made  many  women, 
particularly,  stay  in  teaching  in  spite  of  its  poor  rewards.  They  often 
excuse  their  poorer  clothes  and  financial  restrictions  by  thinking  of  the 
rewards  which  come  to  a  teacher  in  her  old  age  in  the  contemplation 
of  hundreds  of  grateful  pupils  grown  to  manhood  and  womanhood 
under  the  benign  influence  of  ideals  imparted  in  her  classes,  a  pretty 
romance  which  should  end  "and  they  all  lived  happily  ever  after"  but 
which  is  more  liable  to  end  in  a  pauperized  old  age. 

Teachers'  salaries  have  always  been  so  relatively  low  that  salary 
campaigns  have  been  made  on  the  basis  of  financial  justice  in  order 
that  teachers  might  even  exist.  The  increases  which  have  been  given 
have  never  been  large  enough  to  enable  the  teachers  to  give  much  more 
service  or  the  people  to  demand  more  in  return  for  the  additional 
salary.  The  need  of  more  money  for  necessarj^  expenses  is  still  an 
important  factor  in  this  countr}^.  but  salaries  are  also  reaching  the 
level  in  some  states  and  a  number  of  cities,  and  the  increases  are  large 
enough  to  allow  a  margin  of  saving.  When  this  stage  is  reacht  it  is 
not  only  possible,  but  entirely  proper,  for  the  public  to  demand  more 
from  the  teachers  in  return — more  extensive  preparation,  more  care- 
ful performance  of  duties,  and  more  growth  during  service.  Much 
of  the  agitation  which  has  been  created  in  favor  of  better  salaries  has 
been  near-sighted  in  that  it  was  aimed  primarily  at  the  betterment  of 
the  salaries  of  those  already  teaching  and  not  for  the  purpose  of 
encouraging  more  people  to  enter,  or  those  who  do,  to  prepare  them- 
selves better.  In  other  words,  salary  campaigns  have  often  been 
selfish  rather  than  professional.  In  most  cases,  however,  teachers 
have  been  too  reticent  about  their  work — too  ready  to  toil  on  and  wait 
for  society  to  reward  them  adequately.  They  have  allowed  others  to 
tell  what  the  teachers  should  do  and  receive  and  have  made  no  protest, 
— at  least  no  protest  loud  enough  to  be  heard  away  from  the  boarding- 
house  table, — and  have  resorted  neither  to  the  power  of  numbers  nor 
to  the  force  of  an  awakened  public  opinion. 

There  are  far  too  many  citizens  in  this  country  uninformed  as  to 
the  work  of  the  schools  and  the  present  cost  of  that  work.  These  men 
and  women  are  too  ready  to  give  expression  to  opinions  based  upon 
their  lack  of  information,  and  these  opinions  find  a  much  too  ready 
acceptance.     The  following  letter  appearing  on  the  editorial  page  of 


TEACHEKS'  SALARIES  AND  SALARY  SCHEDULES  \Sl 

one  of  the  leading  Western  newspapers  is  but  typical  of  hundreds  of 
others  which  are  given  similar  publicity  and  which  meet  with  too 
much  public  approval. 

Too  Much  is  Spent  on  Schooli 
Writes  Opposes  Raise  of  Teachers'  Pay  and  Suggests  Fewer  High  Schools 

Oregonian,  April  22,  1919. —  (To  the  Editor) — I  see  by  paper  that  teachers 
want  more  pay  and  a  special  election  to  be  called.  Said  salary  raise  was  voted 
down  last  November  at  an  election  costing  $15,000,  and  now  they  have  the  nerve 
to  call  another  election. 

I  am  in  favor  of  an  election  if  these  teachers  will  pay  for  it,  but  otherwise 
not.  They  are  the  best  paid  women  in  the  city,  have  shortest  hours,  easy  work 
and  are  not  satisfied.  As  a  taxpayer  I  think  I  voice  the  sentiment  of  many. 
If  they  are  not  satisfied.  let  them  do  other  work  or  else  let  the  taxpayer  close 
the  schools,  particularly  high  schools,  as  it  is  a  waste  of  time  and  money  and 
does  not  prepare  one  for  the  world,  only  for  college  of  which  we  have  too 
many  now. 

These  schools  are  our  biggest  item  of  expense,  costing  the  awful  sum  of 
$3,000,000  every  ten  months,  which  shows  a  great  waste  somewhere.  I  am  now 
more  convinst  than  ever,  to  be  taxpayer  and  property  owner  (of  which  these 
teachers  are  neither,  not  paying  income  or  any  other  taxes  or  helping  to  build 
up  a  city)  is  to  be  workt  to  a  finish.  It  is  high  time  the  taxpayers'  eyes  are 
opened  to  the  demands  and  expectations.  He  gives  too  much  for  nothing  and 
people  are  never  satisfied. 

Why  does  this  man  not  know  more  about  the  schools?  Why  are 
there  thousands  of  voters'in  that  city  who  agree  with  him? 

Our  twentieth-century  life  has  become  so  complex,  so  specialized, 
that  we  can  no  longer  hope  to  have  "everybody"  interested  in  "every- 
thing." To  be  sure,  the  schools  represent  an  institution  of  more  im- 
mediate interest  to  a  greater  number  of  people  than  any  other,  save 
the  home,  but  even  with  this  as  an  incentive,  people  will  not  inform 
themselves  about  the  schools  unless  it  is  made  interesting  and  easy 
for  them  to  do  so,  or  unless  they  are  made  in  some  way  to  realize  that 
it  is  their  social  duty  to  do  so.  The  responsibility  for  bringing  one  or 
both  of  these  things  to  pass  must  rest  upon  teachers  themselves.  It 
has  rested  there  and  is  now  resting  there — resting  qtiietly  in  a  sleep 
like  that  of  Rip  Van  Winkle,  deep,  dense  and  lasting.  It  is  time  for 
the  eflfects  of  the  draughts  from  the  flagons  of  lassitude  and  indiffer- 
ence to  have  worn  off.  The  profession  must  awake  to  the  realization 
that  many  changes  have  occurred  in  the  past  twenty-five  years,  in  the 
past  five  years.  Methods  of  teaching  have  changed,  standards  of 
preparation  have  advanst,  the  cost  of  living  has  advanst  out  of  pro- 
portion to  the  advance  in  salary,  and  the  community  interest  in  the 
schools  has  changed — changed   from  the  personal-individual  interest 


152  XJTIONAL  EDUCATION  ASSOCIATION 

to  a  more  impersonal  interest  in  the  social  efficiency  of  the  school 
system. 

Teachers  in  many  places  have  allowed  themselves  to  become 
estranged  from  the  public  and  from  school  patrons.  Then  when  they 
are  forced  to  realize  that  they  can  no  longer  meet  their  educational, 
social,  and  hygienic  responsibilities  upon  the  salaries  received,  they 
realize  that  this  estrangement  from  the  public  is  an  obstacle  to  the 
recognition  of  their  claims.  They  now  face  the  task  of  justifying 
their  claims  by  justifying  their  work  and  its  results,  as  well  as  re- 
establishing the  cordial  relationships  which  make  for  mutual  under* 
standing  and  cooperation. 

In  order  to  do  this  it  is  necessary  for  teachers  to  know  their 
own  work,  know  its  importance  to  social  welfare,  and  consciously 
strive  to  interest  the  people  of  the  community  in  their  school  and  its 
problems,  and  interest  them  in  such  a  way  that  they  will  insist  upon 
having  the  best  for  their  children  and  be  willing  to  support  the  schools 
in  such  a  way  that  this  best  may  be  secured. 

Teachers  must  insist  upon  adequate  pay  in  order  that  the  work  of 
education  may  meet  its  present-day  obligations,  but  it  is  no  longer 
necessary  to  wage  campaigns  for  increast  salaries  solely  upon  the  basis 
of  sentiment  or  justice  to  an  opprest  class.  The  case  can  be  presented 
on  its  merits,  and  where  campaigns  have  been  vigorously  made  on  the 
principle  of  educating  the  community  on  matters  concerning  the 
school  to  the  point  that  they  are  able  to  recognize  needs,  they  have 
almost  always  been  successful.  In  such  campaigns  it  is  intended  that 
this  study  of  salaries  and  salary  schedules  not  only  will  be  suggetive 
of  the  kind  of  material  to  secure  but  will  contain  many  facts  and  tables 
which  will  furnish  material  for  comparisons  with  local  conditions. 

The  need  for  higher  salaries  has  been  proved  from  so  many  dif- 
ferent angles  that  there  are  facts  available  for  arguments  in  practically 
every  situation.  In  any  city  waging  an  educative  campaign  for  higher 
salaries  it  is  possible  for  those  in  charge  of  the  publicity  to  compare 
the  salaries  paid  in  that  city  with  the  median  salaries  paid  in  other 
cities  of  the  same  size.  Comparisons  can  be  made  with  the  wages 
paid  in  other  occupations.  The  expenses  may  be  easily  shown  to 
demand  all  or  nearly  all  of  the  salaries.  The  amount  of  preparation 
demanded  may  be  compared  with  the  preparation  in  other  positions  in 
the  same  community  paying  as  much  or  more  salary.  The  inability 
of  teachers  to  attend  summer  schools  and  other  forms  of  professional 
advancement,  to  say  nothing  of  any  margin  for  saving,  can  be  con- 
vincingly shown  by  a  typical  teacher's  budget  on  the  basis  of  twelve 
months. 

When  facts  like  these  are  clearly  shown  and  given  the  necessary 


TEACHERS'  SALARIES  A.\D  SALARY  SCHEDULES  153 

amount  of  "local  color"  to  attract  attention  and  appeal  to  "local  pride," 
there  is  little  doubt  but  that  the  public  will  see  the  situation  in  its  true 
light  and  demand  an  adjustment  which  is  not  only  just  but  which  will 
insure  the  best  possible  training  for  all  children. 

Today  we  face  an  emergency — educational  and  social — which  is 
not  only  going  to  put  the  democracy  we  fought  to  win,  save,  and  per- 
petuate, on  trial,  but  which  in  many  ways  is  going  to  test  the  power 
to  endure  of  even  civilization  itself.  It  will  not  be  solved  by  states- 
men, politicians,  financiers,  labor  leaders,  nor  agitators.  It  will  not  be 
solved  by  the  present  generation  of  citizens,  who  will  be  able  only  to 
make  temporary  settlements  which  will  serve  as  experiments.  The 
real  solution  will  not,  and  can  not,  come  until  some  of  these  experi- 
ments are  made  and  evaluated  by  a  people  trained  to  think  in  the  light 
of  new  ideals  of  service  and  social  values. 

The  responsibility,  then,  for  the  solution  of  the  many  problems  of 
reconstruction  rests  with  the  teachers  of  the  next  decade.  Never  was 
such  a  responsibility  placed  upon  any  class  in  any  society,  and  how 
unprepared  they  are  to  undertake  it  has  been  repeatedly  shown  during 
the  last  four  years.  If  this  emergency  is  to  be  met  and  civilization 
enabled  not  only  to  endure  but  to  progress,  it  can  not  be  done  by 
immature,  unprepared,  and  underpaid  teachers.  These  conditions  will 
be  removed  when  a  united  teaching  profession  can  bring  an  interested 
informed  public  to  demand  the  highest  degree  of  educational 
efficiency,  and  as  the  essential  to  that  efficiency,  to  provide  for  every 
teacher  a  living  and  a  saving  wage. 


APPENDIX  I 
List  of  Cities  Returning  the  Superintendents'  Questionnaire  ^ 


*Cities  whose  returns  came  too  late  for  general  study. 
**Countie«, 


AI 


BI 


CI 


DI 


EI 


All 


BII 


CII 


State 

Conn. 

Mass. 

Mass 
*N.  J. 
*N.  Y. 

Pa. 

D.  C 

Md. 
Va. 

*Ind. 
Ohio 

*Iowa 
Mo. 

Calif. 
Utah 
Wash. 

Conn. 
Mass. 
N.  Y. 
Pa. 
Pa. 

Ark. 
•Ga. 
Ga. 

S.  C. 

111. 
"Mich. 


DII 


EII 


AIII 


City 

State 

City 

Bridgeport 

Conn. 

New  Haven 

Fall  River 

Mass. 

Lynn. 

Worcester 

N.J. 

Jersey  City 

Newark 

N.J. 

Trenton 

New  York 

♦Pa. 

Pittsburgh 

Scranton 

Washington 

La. 

New  Orleans 

Baltimore 

Tenn. 

Nashville 

Richmond 

Indianapolis 

*Mich. 

Grand  Rapids 

Dayton 

Des  Moines 

Minn. 

Minneapolis 

St.  Louis 

Oakland 

*Oregon 

Portland 

Salt  Lake  City 

Washington 

Seattle 

Spokane 

New  Britain 

*Conn. 

Waterbury 

Holyoke 

Mass. 

Brockton 

Schenectady 

N.J. 

Passaic 

Allentown 

N.  Y. 

Yonkers 

Harrisburg 

Pa. 

Erie 

Little  Rock 

Chatham  County 

Ga. 

Augusta 

Savannah 

**Md. 

Allegany  County 

Charleston 

East  St.  Louis 

*I11. 

Springfield 

Flint 

Ohio 

Springfield 

Kansas  City 

*Minn. 

Duluth 

St.  Joseph 

Okla. 

Oklahoma  City 

Berkeley 

Calif. 

SanDiego 

Pueblo 

Stamford 

Conn. 

Norwich 

Pittsfield 

Maine 

Lewiston 

Montclair 

*Mass. 

Waltham 

Kansas 
Mo. 

"Calif. 

Colo. 
[ 

Conn. 

Mass. 

N.J. 

*•  For  cop>   of  questionnaire  see  insert  after  page  7. 
154 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


155 


State 

City 

State 

City 

N.Y. 

Jamestown 

N.J. 

Orange 

N.  y. 

Newburgh 

N.Y. 

Kingston 

Pa. 

Newcastle 

Pa. 

Chester 

W.  Va. 

Wheeling 

Pa.' 

Williamsport 

Bin 

Ark. 

Fort  Smith 

Ky. 

Paducah 

**Md. 

Dorchester  Co. 

**Md. 

Carroll  County 

Texas 

Waco 

N.  C. 

Durham 

cm 

111. 

Moline 

Ind. 

East  Chicago 

Mich. 

Battle  Creek- 

Mich. 

Highland  Park 

Mich. 

Jackson 

Mich. 

Lansing 

Ohio 

Zanesville 

Wis, 

La  Crosse 

Wis. 

Oshkosh 

Wis. 

Sheboygian 

Wis. 

Superior 

Dili 

Iowa 

Council  Bluffs 

Iowa 

Dubuque 

Nebr. 

Lincoln 

Okla. 

Tulsa 

EIII 

Calif 

Fresno 

Calif. 

Par^adena 

Calif. 

San  Jose 

Calif. 

Stockton 

Idaho 

Boise 

Utah 

Ogden  Cit^ 

Wash. 

Bellingham 

Wash. 

Everett 

Wash. 

Walla  Walla 

AIV 

Conn. 

Ansonia 

Conn. 

Bristol 

Conn. 

Willimantic 

Conn. 

Torringtoii 

•  Maine 

Augusta 

Maine 

Biddeford  • 

Maine 

Sanford 

Mass. 

Beverly 

Mass. 

Easthampton 

Mass. 

Framingham 

Mass. 

Greenfield 

Mass. 

Methuen 

Mass. 

Winchester 

N.-H. 

Berlin 

N.  H. 

Laconia 

N.J. 

Asbury  Park 

N.J." 

Hackensack 

N.  J. 

Millville 

N.J. 

North  Bergen 

N.J. 

Phillipsburgh 

N.J. 

•     Plainfield 

N.Y. 

Fulton 

N.  Y. 

"Gloversville 

N.  Y.. 

Little  Falls 

N.Y.     ■■."■ 

Plattsburg 

N.Y. 

Watervliet 

Pa. 

Lewiston           '■"''• 

Pa. 

Bristol 

Pa.    •"-■ 

■  Phoenixville 

Pa. 

Meadville 

Pa.    - 

Wilkinsburg 

Pa. 

Taylor 

BIV 

Ala.       ■ 

Bessemer 

Florida 

Volusia  County 

Ga. 

Albany 

Ga. 

Rome 

Md.     ---i- 

■  =  ■■■•■•    Talbot  County 

S.  C. 

Spartanburg 

Texas 

•      -  Tyler 

W.  Va. 

Bluefield 

W.  Va.      - 

Fairmont 

W.  Va. 

Moundsville 

W.  Va. 

Parkersburg 

CIV 

*I11.      '-^^' 

■   ■^' Alton 

III. 

East  Aurora 

111. 

'  ■ '     Freeport 

lU. 

Granite^City 

156 


NATIONAL  EDUCATION  ASSOCIATION 


DIV 


EIV 


AV 


State 
111. 
111. 
111. 
Ind. 
Mid'. 
Mich. 
♦Ohio 
Ohio 
Ohio 
Ohio 
Wis. 

r 

Iowa 
Okla. 
Kansas 
Nebr. 
S.  Dak. 

Ariz. 
Calif. 
Calif. 
"Calif. 
Mont. 
Mont. 
N.  Mex. 

Conn. 

Maine 

Maine 

Maine 

Mass. 

Mass. 

Mass. 

Mass. 

Mass. 

N.J. 

N.J. 

Pa. 

Pa. 

Pa. 

Pa. 

Pa. 

Vt. 


BV 


CV 


Fla. 
Ga. 
Tenn. 
*W.  Va. 

111. 
III. 


City 

State 

Galesburg 

111. 

Highland  Park 

111. 

Kankakee 

111. 

Mishawaka 

Mich. 

Marquette 

Mich. 

Traverse  City 

Ohio 

ChilHcothe 

Ohio 

Coshocton 

Ohio 

Marion 

Ohio 

Norwood 

Ohio 

Eau  Claire 

Wis. 

Wis. 

Ottumwa 

Kansas 

Ardmore 

Kansas 

Pittsburg 

Minn. 

Grand  Island 

N.  Dak, 

Aberdeen 

S.  Dak. 

Phoenix 

Calif. 

Riverside 

Calif. 

Long  Beach 

Calif. 

Santa  Barbara 

Idaho 

Anaconda 

Mont. 

Great  Falls 

Oregon 

Choves  County 

Derby 

Conn. 

Fort  Kent,  St.  John 

Maine 

Gardiner 

Maine 

Rockland 

Maine 

Amherst 

Mass. 

Orange 

Mass. 

Saugus 

Mass. 

Wellesley 

Mass. 

Whitman 

N.  H. 

Burlington 

N.J. 

Ridgewood 

N.  Y. 

Corry 

Pa. 

East  Pittsburgh 

Pa. 

Indiana 

Pa. 

Juniata 

Pa. 

Munhall 

Pa. 

Rockingham 

Vt. 

Seminole 

Ark. 

Dublin 

Miss. 

Park  City 

Texas 

Elkins 

Beardstown 

111. 

Duquoin 

111. 

City 

Jacksonville 

La  Salle 

Streator 

Holland 

Pontiac 

Cambridge 

Cleveland  Heights 

Elyria 

Mt.  Vernon 

Warren 

Marinette 

Wausau 

Hutchinson 

Salina 

Red  Wing 

Grand  Forks 

Sioux  Falls 

Eureka 

Santa  Ana 

Vallejo 

Pocatello 

Missoula 

Salem 


Putnam 

St.  Francis  Allagast 

Norway 

Westbrook 

Concord 

Rockland 

Stoughton 

Westborough 

Derry 

Essex 

Albion 

Ambridge 

Donora 

Huntingdon 

Jersey  Shore 

Millvale 

Chittenden  County 

Tcxarkana 
Yaroo  City 
Orange 


Belvidere 
Herrin 


Tli 

AC  HERS'  SALARIES 

AND  SALARy 

SCHEDULES             157 

State 

City 

State 

City 

111. 

La  Grange 

111. 

Madison 

111. 

Paris 

Ind. 

Princeton 

Mich 

Boyne  City 

iMich. 

Dowagiac 

Mich. 

Cheboygan 

♦Mich. 

Ypsilanti 

♦Ohio 

Athens 

Ohio 

Bucyrus 

Ohio 

Bellefontaine 

Ohio 

Nelsonville 

•Ohio 

Delaware 

Ohio 

Troy 

Ohio 

Salem 

Wis. 

Chippewa  Falls 

Wis. 

Antigo 

Wis. 

Neenah 

Wis. 

Menasha 

Wis. 

Watertown 

Wis. 

Stevens  Point 

Wis. 

West  Allis 

uv 

Kans. 

Galena 

Kans. 

Junction  City 

Kans. 

Rosedale 

Kans. 

Wellington 

Minn. 

Eveleth 

Mo. 

Carthage 

Nebr. 

Fremont 

Nebr. 

Kearney 

Nebr. 

Nebraska  City 

N.  Dak. 

Minot 

Okla. 

Bartlesville 

Okla. 

Durant 

EV 

Ariz. 

Prescott 

Calif. 

Alhambra 

•Calif. 

Han  ford 

Calif. 

San  Luis  Obispo 

Colo. 

Grand  Junction 

♦Mont. 

Bozeman 

N.  Mex. 

Santa  Fe 

Oregon 

Baker 

Utah 

Logan  City 

Wash. 

Centralia 

AVI 

Conn. 

Essex 

Conn. 

Litchfield 

Conn. 

New  Canaan 

Conn. 

Seymour 

Conn. 

Southington 

*Conn. 

West  port 

Maine 

Cumberland  Co. 

Mass. 

Dalton 

Mass. 

Manchester 

Mass. 

Sutton 

Mass. 

Swansea, 

♦Mass. 

Warren 

Mass. 

West  port 

N.  H. 

Exeter 

♦N.J. 

Bordentown 

N.J. 

Edgewater 

*N.J. 

Haledon 

N.J. 

Hunterdon 

N.J. 

Prospect  Park 

N.J. 

Wharton 

N.J. 

Woodbury 

N.J. 

Newton 

N.  Y. 

Baldwinsville 

N.  Y. 

Carthage 

N.  Y. 

Clyde 

N.  Y. 

Cornwall 

N.  Y. 

Dobbs  Ferr>- 

N.  Y. 

Frankfort 

♦N.  Y. 

Lowville 

N.  Y. 

Lyons 

N.  Y. 

Mount  Morris 

N.  Y. 

Patchoque 

N.  Y. 

Perry 

N.  Y. 

Saranac  Lake 

N.  Y. 

Scotia 

N.  Y. 

Sidney 

N.  Y. 

Silver  Creek 

♦N.  Y. 

Suflfern 

N.  Y. 

Wellsville 

Pa. 

Birdsboro 

Pa. 

Barnesboro 

Pa. 

Ford  City 

Pa. 

Delaware 

Pa. 

Jefferson 

Pa. 

Grove  City 

Pa. 

Mauch  Chunk 

Pa. 

Leechburg 

Pa. 

Northumberland 

Pa. 

Nazareth 

Pa. 

Renovo 

Pa. 

Parsons 

Pa. 

Slatington 

158 


NATIONAL  EDUCATION  ASSOCIATION 


State 

City 

State 

City 

Pa. 

Verona 

Pa. 

South  Fork 

•Pa. 

Williamstown 

Vt. 

Franklin                         \ 

Vt.     . 

Springfield 

BVI 

Ala. 

Girard 

Ala. 

Ofseliban 

Ala. 

Sheffield 

♦Ala. 

Troy 

Ark. 

Fordyce 

Fla. 

Orlando                                  •^ 

Ky. 

Ludlow 

S.  C. 

Abbeville 

Tenn. 

Lenoir 

Texas 

Bay  City 

Texas 

Jacksonville 

Texas 

Plainview 

Texas 

Stamford 

Va. 

Lexington 

CVI 

1 

111. 

Bushnell 

111. 

Cooksville                            1 

111. 

Farmer  City 

111. 

Harrisburg                            1 

111. 

Lake  Forest 

111. 

Lockport 

IlL 

Morris 

III. 

Naperville 

lU. 

Robinson 

lU. 

Venice 

Ind. 

Auburn 

Ind. 

Angola 

Ind. 

Decatur 

Ind. 

Franklin 

Ind. 

KendallviUe 

Ind. 

North  Vcaraon 

Ind. 

Rochester 

Ind. 

Warsaw 

Mich. 

Greenville 

Mich. 

Gladstone 

Mich. 

St.  Johns-i 

Mich 

Onaway 

Ohio 

Crooks  ville 

Mich. 

Crystal  Falls 

Ohio 

Kent 

Ohio 

East  Palestine 

Ohio 

Shelby 

Ohio 

Medina 

Wis. 

Two  Rivers 

Wis. 

Kaukauna 

DVI 

Iowa 

Chariton 

Iowa 

Cherokee 

Iowa 

Eagle  Grove 

Iowa 

Indianola 

Kans. 

Beloit 

Kans. 

Cherryvale 

Kans. 

Horton 

Kans. 

Larned 

Kans. 

Neodesha 

Kans. 

Osawatomie 

Minn. 

St.  Peter 

Minn, 

Staples 

Minn. 

Wabasha 

Minn. 

Waseca 

Mo. 

Excelsior  Springs 

Mo. 

Kirkwood 

Mo. 

Monette 

*Mo. 

Slater 

N.  Dak. 

Dickinson 

N.  Dak. 

Jamestown 

Okla. 

Frederick 

Okla. 

Woodward 

S.  Dak. 

Redfield 

EVI 

Calif. 

Emeryville 

Calif. 

Tulare 

Calif. 

Monrovia 

Calif. 

Nevada  City 

Calif. 

Oroviile 

Calif. 

Red  Bluff 

Colo. 

Alamosa 

*Colo. 

Montrose 

Colo. 

SaHda 

Idaho 

Nam  pa 

Idaho 

Weiser 

Mont. 

Havre 

Mont. 

Miles 

Nev. 

Tonopah 

N.  Mex. 

Raton 

Oregon 

Albany 

Wash. 

Ellensburg 

Wash. 

Kittitas 

Wash. 

Pullman 

Wash.  . 

Renton 

Wyoming 

E-vanston 

APPENDIX  II 


LIST  OF  CITIES  Ax\D  COUNTIES  FROM  WHICH  REPLIES  TO  TEACHERS' 

QUESTIONNAIRE!  WERE   RECEIVED.      Arranged  Alphabetically  by  States 

and  Cities  with  the  size  group  and  number  of  replies  indicated  for  each  city. 


State  &  City 

Size 

No.  of 

State  &  City 

Size 

No.  of 

Group 

Replies 

Group 

Replies 

Alabama 

(B) 

Stamford 

III 

156 

Troy 

VI 

25 

Thomasville 

VI 

3 

Torrington 

IV 

90 

Arizona 

(E) 

Unionville 

VI 

3 

Phoenix 

IV 

30 

Westport 

VI 

30 

Prescott 

V 

98 

Florida 

(B) 

Arkansas 

(B) 

Altamonte  Springs 

VI 

1 

Fort  Smith 

III 

33 

Apopka 
Chuluota 

VI 
VI 

5 

1 

California 

(E) 

Forest  City 

VI 

1 

Alhambra 

V 

70 

Geneva 

VI 

3 

Bakersfield 

IV 

55 

Koloku 

VI 

1 

Berkeley 

II 

150 

Lake  Monroe 

VI 

1 

Eureka 

IV 

48 

Lockbart 

VI 

1 

Fresno 

III 

200 

Longwood 

VI 

4 

Long  Beach 

III 

150 

Maitland 

VI 

2 

Monrovia 

VI 

21 

Ocokee 

VI 

1 

Oakland 

I 

550 

Orlando 

VI 

1 

Pasadena 

III 

80 

Oviedo 

VI 

11 

Red  Bluff 

VI 

13 

Paola 

VI 

I 

Riverside 

IV 

241 

Pine  Castle 

VI 

1 

San  Jose 

III 

4 

Sanford 

VI 

28 

Santa  Ana 

IV 

71 

Tangerine 

VI 

1 

Santa  Monica 

V 

50 

Wintergarden 

VI 

2 

Tulare 

VI 

20 

Zellwood 

VI 

1 

Colorado 

(E) 

Georgia 

(B) 

Colorado  Springs 

III 

1 

Augusta 

II 

113 

Denver 

I 

53 

Idaho 

(E) 

Montrose 

VI 

50 

Boise 

III 

87 

Pueblo 

n 

104 

Nampa 

VI 

30 

Salida 

VI 

33 

Illinois 

(C) 

Connecticut 

(A) 

Aurora 

III 

30 

Ansonia 

IV 

12 

Belvidere 

V 

55 

Collinsville 

VI 

1 

Canton 

IV 

30 

Enfield 

IV 

2 

Carterville 

VI 

13 

Essex 

VI 

2 

Decatur 

III 

150 

Farmington 

VI 

8 

East  St.  Louis 

II 

71 

Litchfield 

VI 

9 

Farmer  City 

VI 

12 

New  Britain 

II 

55 

Freeport 

IV 

66 

Norwich 

III 

83 

Galesburg 

IV 

75 

Old  Saybrook 

VI 

1 

Granite  City 

IV 

50 

Seymour 

VI 

2 

Herrin 

V 

43 

Southington 

VI 

12 

Hillsboro 

VI 

30 

'  For  copy  of  questionnaire  see  pags  8. 


159 


160 


NATIONAL  EDUCATION  ASSOCIATION 


State  &  City 

Size 

No.  of 

State  &  City 

Size 

No  of 

Group 

Replies 

Group 

Replies 

Lake  Forest 

VI 

20 

Gardiner 

V 

6 

La  Salle 

IV 

18 

Gorham 

V 

4 

Lockport 

VI 

75 

Lewiston 

III 

20 

Madison 

V 

18 

Norway 

VI 

13 

Naperville 

VI 

20 

Oxford 

VI 

3 

Ottawa 

V 

25 

Portland 

II 

4 

Rock  Island 

III 

122 

Rockland 

V 

12 

Streator 

IV 

16 

Sanford 

IV 

27 

Venice 

VI 

11 

South  Paris 

VI 

2 

Springvale 

VI 

2 

Indiana 

(C) 

Waterford 

VI 

4 

Anderson 

IV 

7 

Crawfordsville 

IV 

50 

Maryland 

(B) 

Decatur 

VI 

26 

Baltimore  County 

I 

1 

East  Chicago 

III 

59 

Carroll  County 

IV 

88 

Franklin 

VI 

6 

Easton  &  vicinity 

VI 

32 

Gary 

IV 

3 

Western  Maryland 

VI 

60 

Goshen 

V 

49 

Indianapolis 

I 

2 

Massachusetts 

(A) 

Kendallsville 

VI 

20 

Amherst 

V 

33 

Madison 

V 

30 

Andover 

V 

10 

Mishawaka 

IV 

75 

Arlington 

IV 

6 

Vincennes 

IV 

71 

Barre 

VI 

14 

Beverly 

IV 

75 

Iowa 

(D) 

East  Hampton 

IV 

17 

Cedar  Rapids 

III 

4 

Fall  River 

I 

40 

Clinton 

III 

28 

Gilbertville 

V 

1 

Des  Moines 

I 

225 

Greenfield 

IV 

4 

Eaglegrove 

VI 

1 

Saugus 

V 

25 

Indianola 

VI 

1 

Manchester 

VI 

5 

Oelwein 

V 

45 

Methuen 

IV 

50 

Ottumwa 

IV 

120 

Northampton 

IV 

1 

Petersham 

VI 

7 

Kansas 

(D) 

Somerset 

VI 

8 

Abilene 

VI 

25 

Springfield 

I 

200 

Beloit 

VI 

1 

Swansea 

VI 

4 

Galena 

V 

10 

Waltham 

III 

50 

Horton 

VI 

23 

Wellesley 

V 

14 

Hutchinson 

IV 

75 

Whitman 

V 

21 

Junction  City 

V 

40 

Worcester 

I 

10 

Leavenworth 

IV 

20 

Osawatomie 

VI 

25 

Michigan 

(C) 

Topeka 

III 

11 

Allegan 

VI 

33 

Wellington 

V 

167 

Battle  Creek 

III 

100 

Cheboygan 

V 

31 

Kentucky 

(C) 

Crystal  Falls 

VI 

50 

Paducah 

III 

83 

Dowagiac 

V 

35 

Grand  Ledge 

VI 

24 

Maine 

(A) 

Greenville 

VI 

16 

Augusta 

IV 

100 

Highland  Park 

III 

125 

TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 

161 

State  &  City 

Size 

No.  of 

State  &  City 

Size 

No.  of 

Group 

Replies 

Group 

Replies 

Holland 

IV 

25 

New  Jersey 

(A) 

Iron  wood 

IV 

89 

Asbury  Park 

IV 

84 

Lansing 

III 

30 

Bordentown 

VI 

11 

Marquette 

IV 

53 

Burlington 

V 

6 

Onaway 

VI 

17 

Edgewater 

VI 

10 

Pontiac 

IV 

105 

Garfield 

IV 

6 

River  Rouge 

VI 

27 

Granton 

VI 

1 

Saginaw 

II 

130 

Hackensack 

IV 

70 

St.  Johns 

VI 

13 

Haledon 

VI 

18 

Traverse  City 

IV 

67 

Irvington 

IV 

78 

Ypsilanti 

V 

35 

Millville 

IV 

77 

Montclair 

III 

168 

Minnesota 

(D) 

Newton 

VI 

30 

Albert  Lea 

V 

25 

North  Bergen 

IV 

100 

Brainerd 

V 

24 

Passaic 

II 

63 

Duluth 

II 

320 

Phillipsburg 

IV 

12 

Little  Fails 

V 

37 

Plainfield 

IV 

139 

Montevideo 

VI 

20 

Red  Wing 

IV 

50 

New  Mexico 

(E) 

Stillwater 

V 

25 

Las  Cruces 

VI 

29 

St.  Paul 

I 

10 

Raton 

VI 

13 

St.  Peter 

VI 

20 

Roswell 

V 

196 

Wabasha 

VI 

15 

Santa  Fe 

V 

40 

Waseca 

VI 

9 

Winona 

IV 

75 

New  York 

(A) 

Albion 

V 

29 

Mississippi 

(B) 

Carthage 

VI 

8 

Yazoo  Citj- 

V 

10 

Dobbs  Ferry 

VI 

14 

Fulton 

IV 

66 

Missouri 

(D) 

Jamestown 

III 

88 

St.  Joseph 

II 

175 

Le  Roy 

VI 

14 

Mt.  Morris 

VI 

13 

Montana 

(E) 

Newburgh 

III 

50 

Great  Falls 

IV 

96 

Patchogue 

VI 

30 

Lewistown 

VI 

7 

Plattsburg 

IV 

29 

Miles  City 

VI 

34 

Saranac  Lake 

VI 

40 

Missoula 

IV 

43 

Silver  Creek 

VI 

11 

Suffern 

VI 

25 

Nebraska 

(D) 

Syracuse 

I 

18 

.\lliance 

VI 

27 

Walton 

VI 

30 

Falls  City 

VI 

25 

Watervliet 

IV 

32 

Kearney 

V 

34 

Wellsville 

VI 

24 

Lincoln 

III 

250 

North  Carolina 

(B) 

Nevada 

(E) 

Durham 

III 

42 

Tonopah 

VI 

9 

Greensboro 

IV 

100 

New  Hampshire 

(A) 

North  Dakota 

(D) 

Portsmouth 

IV 

30 

Dickinson 

VT 

25 

162 


NATIONAL  EDUCATION  ASSOCIATION 


State  &  City 

Size 

No.  of 

State  &  City 

Size 

No.  of 

Group 

Replies 

Group 

Replies 

Ohio 

(C) 

Punxstawney 

VI 

36 

Athens 

V 

15 

Renovo 

VI 

15 

Bellefontaine 

V 

30 

Scranton 

I 

300 

Cambridge 

IV 

50 

Sidman 

VI 

1 

Chillicothe 

IV 

25 

South  Fork 

VI 

15 

Cleveland  Heights 

IV 

64 

Verona 

VI 

"7 

Columbus 

I 

375 

Williamsport 

III 

75 

Crooksville 

VI 

20 

Delaware 

V 

35 

South  Carolina 

(B) 

East  Palestine 

VI 

1 

Charleston 

II 

91 

Elyria 

IV 

50 

Spartanburg 

IV 

39 

Gallipolis 

V 

20 

Lima 

III 

50 

South  Dakota 

(D) 

Kent 

VI 

41 

Aberdeen 

IV 

67 

Mansfield 

IV 

100 

Sioux  Falls 

IV 

SO 

Mt.  Vernon 

IV 

37 

Nelsonville 

V 

31 

Texas 

(B) 

Norwood 

IV 

50 

Austin 

III 

60 

Shelby 

VI 

18 

Bay  City 

VI 

1 

Zanesville 

III 

21 

Tyler 

IV 

50 

Oklahoma 

(D) 

Utah 

(E) 

Bartlesville 

V 

50 

Logan 

V 

34 

Durant 

V 

1 

Odgen 

III 

69 

Guthrie 

IV 

60 

Salt  Lake  City 

I 

1 

Tulsa 

III 

238 

Vermont 

(A) 

Oregon 

(E) 

Bellows  F"alls 

VI 

6 

Albany 

VI 

•       25 

Rutland 

IV 

100 

Baker 

V 

34 

Dalles 

VI 

20 

Salem 

IV 

^3> 

Virginia 

(B) 

Hewlett 

VI 

1 

Pennsylvania 

Ambridge 

(A)   ■ 
V 

48 

Lexington 
Richmond 

VI 

I 

2 

300 

Birdsboro 

VI 

20 

Carry 

\' 

20 

Washington 

(E) 

Conshohocken 

V 

31 

Aberdeen 

IV 

1 

Duryea 

V 

25 

Bellingham 

III 

120 

Erie 

II 

5 

Centralia 

V 

•  47 

Ford  City 

VI 

9 

Everett 

III 

50 

Freedom 

VI 

20 

Pullman 

VI 

17 

Jersey  Shore 

V 

27 

Renton 

VI 

26 

Johnstown 

II- 

-       229 

Roslyn 

VI 

22 

Juniata 

V 

25 

Seattle 

1 

500 

Kittanning 

VI 

1 

Spokane 

I 

25 

Mauch  Chunk 

VI 

4 

Walla  Walla 

III 

65 

Millvale 

V 

16 

Nazareth 

VI     ■ 

■-•-•  --"15 

Wisconsin 

"(C)- 

Oakmont 

VI 

4 

Eau  Claire 

IV 

75 

TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


163 


State  &  City 

Size 

No.  of 

State  &  City 

Size 

No.  of 

Group 

Replies 

Group 

Replies 

Kaukauna 

VI 

28 

Superior 

III 

14 

La  Crosse 

III 

71 

Two  Rivers 

VI 

26 

Menasha 

V 

25 

West  Allis 

V 

60 

Merrill 

V 

35 

Neenah 

V 

41 

Wyoming 

(E) 

Plymouth 

VI 

1 

Evanston 

VI 

5 

Sheboygan 

III 

ion 

Sheridan 

IV 

40 

APPENDIX  III 

A  coefificient  of  correlation  is  an  index  of  the  closeness  of  relation 
between  two  items.  It  is  represented  by  values  of  "r"  which  range 
from  +  i.oo  (perfect  relation)  where  a  given  rank  or  position  in  one 
item  always  goes  with  the  same  rank  or  position  in  the  other  item ; 
thru  the  intermediate  values  to  .o  (chance  relation)  where  it  is  purely 
chance  whether  a  given  rank  or  position  in  one  item  will  go  with  the 
same  rank  or  position  in  the  other  item ;  thru  the  intermediate  values 
to  —  1.00  where  a  given  rank  or  position  of  one  item  always  goes 
with  the  opposite  of  that  rank  or  position  in  the  other  item.  Thus,  a 
coefficient  of  correlation  between  "salary  received"  and  "experience" 
of  r  =  -f~  i>  would  indicate  that  the  greater  the  experience  the  more 
the  salary  received ;  r  =  .o  would  indicate  no  relation  between  the  two, 
while  r  =  —  i.  would  mean  that  the  less  the  experience  the  higher  the 
salary,  or  the  lower  the  salary,  the  more  the  experience. 

To  find  coefficients  of  correlations  by  Sheppard's  method  of  unlike 
signs  involves  the  division  of  the  correlation  table  (Table  L)  into 
quadrants  by  the  medians  of  the  two  distributions.  Individual  cases 
falling  above  or  in  excess  of  the  medians  in  either  distribution  are 
said  to  be  positive  (  +  )  for  that  distribution  and  those  falling  below 
the  median  in  either  distribution  are  said  to  be  negative  ( — ). 

Sheppard's  formula  involves  the  finding  of  the  percentage  which 
the  measures  of  unlike  signs  are  of  the  total  number  of  measures. 
This  gives  a  value  "U"  which  is  transferred  to  a  value  of  "r"  from  a 
table. ^  In  the  distribution  tables  used  in  these  studies,  it  was  not  pos- 
sible to  locate  the  median  within  any  step  and  divide  the  cases  falling 
upon  that  step  in  the  proper  quadrant.  Thus,  in  Table  L  the  Median 
for  the  "salary"  is  $910,  and  the  median  for  "age"  is  31.6  years. 
Thorndike^  gives  an  adaptation  of  Sheppard's  formula  to  provide  for 
the  "zero  cases" — those  falling  within  the  median  steps.  ( In  Table  L 
the  "$900  step"  for  salary  and  "30  years"  step  for  age).  Because  of 
the  nature  of  the  material  and  the  number  of  cases  involved  a  simpli- 
fication of  Thorndike's  formula  was  used.  In  determining  the  limits 
of  the  quadrants,  if  the  median  fell  within  the  first  fourth  of  the  step, 
the  line  was  drawn  at  the  beginning  of  the  step,  if  it  fell  within  the 
middle  half  of  the  step,  the  lines  were  drawn  at  the  beginning  and 
close  of  the  step,  and  if  the  median  fell  within  the  last  fourth  of  the 
step  the  line  was  drawn  at  the  close  of  the  step.  (Heavy  lines  indicate 
where  quadrant  division  occur  in  Table  L.)  This  method  insures  that 
the  misplacement  of  measures  in  counting  the  number  in  the  quadrants 


1  Thortidike    Mental   and    .Social    Measurements — page    j-i.      Teacher's    CoUefre,    Columbia 
University. 

164 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES 


165 


can  never  be  more  than  %  of  the  cases  falling  within  the  median  step. 

The  value  of  "U"  was  then  determined  by  the  formula  U-- 

n 

where  "u"  is  the  sum  of  the  cases  with  unlike  signs,  "n"  the  total  num- 
ber of  cases  and  "d"  the  "zero  pairs"  falling  within  the  median  step. 
The  process  for  the  distribution  table  shown  in  Table  L  will  serve  as 
an  illustration. 


=r 

+ 

74 

24 

+ 

22 

+ 
+ 

73 

u  = 


(24  +  22)   +3/2     (19) 


55-5  =  -26 


From  table, 


.6848 


212  212 

y^  From  ta 

d  =  19 

This  shows  a  distinct  relation  between  "age"  and  "salary  received" 
for  the  teachers  in  this  group.  It  is  observable  from  the  table  that 
there  is  a  markt  tendency  for  the  teachers  who  are  above  the  median 
age  to  be  above  the  median  salary  also,  and  for  those  below  the  median 
age  to  be  below  the  median  salary.  Where  the  cases  were  irregular 
or  buncht  heavily  upon  the  median  step,  the  value  of  "r"  was  checkt 
by  finding  the  "coefficient  of  mean  square  contingency"^  which  "is 
built  up  by  reference  to  the  theory  of  probability,  and  measures 
relationship  in  terms  of  the  difiference  between  the  numbers  of 
measures  actually  found  in  the  various  compartments  of  the  correla- 
tion table  (or  'contingency'  table  more  generally),  and  the  numbers 
that  might  be  expected  there  by  pure  chance."  The  coefficient  of  mean 
square  contingency  gives  a  value  "C"  which  may  be  interpreted  in  the 
same  way  as  a  value  of  "r"  even  tho  they  are  by  no  means  synonomous. 


The  me 

thod  of 

securing 

"C"  is  by  the  formula  C  = 

V  N  +  X' 

74 
(47) 

5 

(9) 

14 
(10) 

24 

(47) 

103  X  96  ^  212  =  47 
103  X  19^212=:  9 
103  X  97  -^  212  =  47 
109  X  96  -^  212  =  49 

109  X  19  -^  212  =   10 

T09  X  97  -T-  212  =  50 

103 

2"^ 

^(49) 

73 

(5o)| 

109 

96      1  19 

97  1 

212 

1  Pearson's   tables    for   Statisticians   and    Biometricians — page   35,    Cambridge   University 
Press.     Yule  Theory  of  Statistics — page  64,  C.  Griffin  Co.     Rugg  Statistical  Method  Applied 

to   Echicatioii,    HouKton    Mifflin    Co. 


166 


NATIONAL  EDUCATION  ASSOCIATION 


(74r— 47)»       (9—5)'       (47—24)'        (49—22)*        (14—10)'        (73— 50)» 
X«= +  +  +  +  +  


47  9  47 

272       42       232       272       42        23« 

X»  =  —  +  -+—+—  +—   +  — 

47       9        47        49        10        50 


49 


10 


50 


X»  =  55.7     C  = 


=  V^-^ 


=     .46 


212+55.7 


1 


This  gives  a  lower  coefficient  than  r  =  .68  obtained  by  Sheppard's 
formula,  but  it  indicates  very  clearly  the  presence  of  a  relation  between 
the  two  items — salary  and  age,  for  that  group  of  teachers.  Allowance 
must  also  be  made  in  interpreting  coefficients  of  mean  square  con- 
tingency, for  the  fact  that  in  tables  of  4  compartments  the  greatest 
possible  value  of  "C"  i.  e.  for  perfect  correlation,  would  not  be  greater 
than  C=.yi.  For  6  compartments  the  highest  possible  value  must 
be  between  C  =  .71  and  C  =  .82  which  is  the  highest  possible  value 
for  9  compartments.  Not  more  than  Qcompartments  were  used  in  this 
study.     This  will  greatly  decrease  the  seemingly  great  difference  be- 

TABLELXIX 

TABLE  SHOWING  COMPARISONS  FOR  CERTAINISELECTED  ITEMS  BETWEEN  COEFFICIENTS    OF 
CORRELATIONS    (Computed   by   Modification   of  Sheppard's   Method   of  Unlike   Signs)i  AND  CO- 
EFFICIENTS OF  MEAN  SQUARE  CONTINGENCY^  COMPUTED  FOR  THE  SAME  ITEMS 


Group  and  study 

A 

B 

c 

D 

E 

IV.     Experience  and  Salary 

(1) 

r  = 
C  = 

.55 
.37 

r  = 

c  = 

.67 
.48 

r  = 
C  = 

.31 
.23 

r  = 

c  = 

.34 
.31 

r  = 

c  - 

.39 

.27 

Difference  between  C  and  r. . . 

.18 

.19 

.08 

.03 

.12 

IV.     Living   Expenses  and   Salary 
(2a) 

r  = 
C  = 

.71 

.47 

r  = 
c  = 

.61 

.48 

r  = 

c  = 

.68 
.47 

r  =• 
C  = 

.70 
.47 

r  — 

c  = 

.68 
.49 

Difference  between  C  and  r. . . 

.24 

.13 

.21 

.23 

.19 

IV.  %  of  Salary  Spent  for  Living  . 
(3a)     Expenses  and  Salary 

r  = 

c  = 

—  .34 

—  .24 

C  =  — 

.25 
.26 

r  =  — 
C  =  — 

.23 
.18 

C  =  — 

.04 
.04 

r  = 

c  = 

—  .03 

—  .09 

Difference  between  C  and  r. . . 

.10 

.01 

.05 

.00 

.06 

IV.     Increase  or  Decrease  in  %  of 
Salary  Spent  and  salary .  . . 
(4) 

r  => 

c  = 

—  .06 

—  .07 

C  =  — 

.31 
.24 

r  =» 
C  = 

.03 
.06 

r  = 
C  = 

.16 
.18 

r  = 
C  = 

—  .06 

—  .35 

Difference  between  C  and  r. . . 

.01 

.07 

.03 

.02 

.29 

IV.     Recreation,  Professional 
(5a)     Advancement  and  Salary. 

r  = 
C  = 

.34 
.23 

r  = 
c  = 

.00 
.08 

r  = 
C  = 

.09 
.06 

r  = 
C  = 

.19 
.12 

r  = 
C  = 

.25 
.17 

Difference  between  C  and  r. . . 

.11 

.08 

.03 

.07 

.08 

IV.     Total  Expenses  and  Salary 
(6a) 

r  ■= 
C  = 

.78 
.55 

r  — 
c  = 

.66 
.53 

r  = 
C  = 

.60 
.44 

r  ^ 
C  = 

.76 
.49 

r  = 
C  = 

.72 
.53 

Difference  betwen  C  and  r 

.23 

.13 

.16 

.27 

.    .19    1 

1 

IV.     Total  Schooling  and  Salary 
(9) 

r  «= 
C=> 

.06 
.13 

r  =«  — 
C  =  — 

.56 
.35 

r  =• 
C  = 

.13 
.13 

r  =  — 

c  =  — 

.22 
.24 

r  = 
C- 

—  .17    1 
-.13 

Difference  between  C  and  r. . . 

.07 

.21 

.00 

.02 

.04  j 

'  For  explanation  of  modification  see  page  165 

'  For  method  of  securing  coefficient  of  mean  square  contingency  see  page  165. 


TEACHERS'  SALARIES  AND  SALARY  SCHEDULES  167 

tween  the  r  =  .68  and  the  C  =  .46  found  for  Table  L.  Sevent)'- 
eight  of  the  correlations  were  checkt  by  having  coefficients  of  mean 
square  contingency  computed,  35  of  them  are  arranged  in  Table  LXIX 
for  seven  typical  studies  for  Group  IV  for  all  geographical  groups.  In 
only  one  case  of  the  78  contingency  coefficients  was  there  difference 
enough  between  the  findings  to  materially  change  the  correlation 
which  might  be  said  to  exist.  The  case  in  point  was  Group  IV  E 
where  an  r  of  —  .06  becomes  a  C  of  —  .35.  The  relationships 
shown  by  the  coefficients  in  Tables  LV  and  LVI  may,  therefore,  be 
taken  as  indicative  of  the  presence  or  absence  of  relationships  in  vary- 
ing degrees  on  a  coarse  scale. 

In  getting  an  index  for  the  different  size  groups  the  averages  of 
the  coefficients  of  correlation  are  made  and  the  probable  error^  of  this 
average  computed.  The  probable  error  seems  large  in  many  cases 
due  to  the  small  number  of  coefficients  averaged. 


I  p.  E.  computed  by  formula  P.  E.  =  -f-  .6745  °-  ^-    in  which  n  =  5  except  in  Group  V  where  it  is  4 

•    n 

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